THE  ALASKAN  ElllERlNG  COMMISSION 


SERVICE  MONOGRAPHS 

OF  THE 

UNITED  STATES  GOVERNMENT 

N2  4 
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THE  ALASKAN  ENGI- 
NEERING  COMMISSION 

ITS  HISTORY,  ACTIVITIES 
AND    ORGANIZATION 


THE  INSTITUTE  FOR  GOVERNMENT  RESEARCH 

Washington,  D.  C. 


The  Institute  for  Government  Research  is  an  association  of 
citizens  for  cooperating  with  pubUc  officials  in  the  scientific 
study  of  government  with  a  view  to  promoting  efficiency  and 
economy  in  its  operations  and  advancing  the  science  of  ad- 
ministration. It  aims  to  bring  into  existence  such  informa- 
tion and  materials  as  will  aid  in  the  formation  of  public  opin- 
ion and  will  assist  officials,  particularly  those  of  the  national 
government,  in  their  efforts  to  put  the  public  administration 
upon  a  more  efficient  basis. 

To  this  end,  it  seeks  by  the  thoroughgoing  study  and  exam- 
ination of  the  best  administrative  practice,  public  and  private, 
American  and  foreign,  to  formulate  those  principles  \yhich  lie 
at  the  basis  of  all  sound  administration,  and  to  determine  their 
proper  adaptation  to  the  specific  needs  of  our  public  adminis- 
tration. 

The  accomplishment  of  specific  reforms  the  Institute  recog- 
nizes to  be  the  task  of  those  who  are  charged  with  the  respon- 
sibility of  legislation  and  administration;  but  it  seeks  to  assist, 
by  scientific  study  and  research,  in  laying  a  solid  foundation  of 
information  and  experience  upon  which  such  reforms  may  be 
successfully  built. 

While  some  of  the  Institute's  studies  find  application  only  in 
the  form  of  practical  cooperation  with  the  administrative  of- 
ficers directlv  concerned,  many  are  of  interest  to  other  admin- 
istrators and  of  general  educational  value.  The  results  of 
such  studies  the  Institute  purposes  to  publish  in  such  form  as 
will  insure  for  them  the  widest  possible  utilization. 

Officers 
Robert  S.  Brookings,  Frank  J.  Goodnow. 

Chaii^n  Vice-chairman 

James  F.  Curtis,  Frederick  Strauss, 

Secretary  Treasurer 

Trustees 

Edwin  A.  Alderman  Edwin  F.  Gay  Charles  D.  Norton 

Robert  S.  Brookings  Frank  J.  Goodnow  Martin  A.  Ryerson 

James  F.  Curtis  Jerome  D.  Greene  Frederick  Strauss 

R.  Fulton  Cutting  Arthur  T.  Hadley  Silas  H.  Strawn 

Frederic  A.  Delano  Herbert  C.  Hoover  William  H.  Taft 

George  Eastman  A.  Lawrence  Lowell  Ray  Lyman  Wilbur 

Raymond  B.  Fosdick  Samuel  Mather  Robert  S.  Woodward 

Felix  Frankfurter  Richard  B.   Mellon 

Director 

W.  F.   Willoughby 

Editor 
F.  W.  Powell 


INSTITUTE  FOR  GOVERNMENT  RESEARCH 
SERVICE  MONOGRAPHS 

OF   THE 

UNITED  STATES  GOVERNMENT 
No.  4 


THE  ALASKAN  ENGI- 
NEERING COMMISSION 

ITS  HISTORY,  ACTIVITIES 
AND  ORGANIZATION 


BY 

JOSHUA  BERNHARDT 


D.  APPLETON  AND  COMPANY 
NEW  YORK  LONDON 

1922 


Copyright,  1922,  by 
THE  INSTITUTE  FOR  GOVERNMENT  RESEARCH 


FEINTED  IN  THE  UNITBD  STATDS  Or  AMEBIOA 


3  53.  i 


PUBLICATIONS  OF  THE 
INSTITUTE  FOR  GOVERNMENT  RESEARCH 


STUDIES  IN  ADMINISTRATION 

The   System  of  Financial  Administration  of  Great  Britain 

By  W.  F.  Willoughby,  W.  W.  Willoughby,  and  S.  M.  Lindsay 

The  Budget 

By  Rene  Stourm 

T.    Plazinski.   Translator;   W.  F.   McCaleb,   Editor 

The  Canadian  Budgetary  System 

By  H.  G.  Villard  and  W.  W.  Willoughby 
The  Problem  of  a  National  Budget 

By  W.  F.  Willoughby 
The  Movement  for  Budgetary  Reform  in  the  States 

By  W.  F.  Willoughby 
Teacher's   Pension  Systems  in  the  United  States 

By    Paul    Studensky 
Organized  Efforts  for  the  Improvement  of  Methods  of  Ad- 
ministration in  the  United  States 

By  Gustavus  A.  Weber 
The  Federal  Service:    A  Study  of  the  System  of  Personal 
Administration  of  the   United  States   Government 

By  Lewis   Mayers 
The    System    of    Financial    Administration    of    the    United 
States   (In  Preparation) 

PRINCIPLES  OF  ADMINISTRATION 

Principles  Governing  the  Retirement  of  Public  Employees 

By  Lewis   Aleriam 

Principles   of  Government  Piu-chasing 
By  Arthur  G.  Thomas 

Principles   of   Government  Accounting  and   Reporting 

By  Francis  Oakey,  C.   P.  A. 
Principles   of   Personnel   Administration 

By  Arthur  W.  Procter 

SERVICE    MONOGRAPHS    OF    THE    UNITED    STATES 
GOVERNMENT 

The   Geological   Survey 

The  Reclamation  Service 

The  Bureau  of  Mines 

The  Alaskan  Engineering  Commission 

The  Tariff  Commission 

The  Federal  Board  for  Vocational  Education 

The  Federal  Trade  Commission 

The   Steamboat-Inspection   Service 

The  National  Parks  Service 

The  Public  Health  Service 

The  Weather  Bureau 

The  Employee's   Compensation   Commission 


;^.>v.5  4^i 


FOREWORD 

The  first  essential  to  efficient  administration  of  any  enter- 
prise is  full  knowledge  of  its  present  make-up  and  operation. 
Without  full  and  complete  information  before  them,  as  to 
existing  organization,  personnel,  plant,  and  methods  of  oper- 
ation and  control,  neither  legislators  nor  administrators  can 
properly  perform  their  functions. 

The  greater  the  work,  the  more  varied  the  activities  en- 
gaged in,  and  the  more  complex  the  organization  employed, 
and  more  imperative  becomes  the  necessity  that  this  informa- 
tion shall  be  available — and  available  in  such  a  form  that  it 
can  readily  be  utilized. 

Of  all  undertakings,  none  in  the  United  States,  and  few,  if 
any,  in  the  world,  approach  in  magnitude,  complexity,  and 
importance  that  of  the  national  government  of  the  United 
States.  As  President  Taft  expressed  it  in  his  message  to  Con- 
gress of  January  17,  1912,  in  referring  to  the  inquiry  being 
made  under  his  direction  into  the  efficiency  and  economy  of  the 
methods  of  prosecuting  public  business,  the  activities  of  the 
national  government  "are  almost  as  varied  as  those  of  the  en- 
tire business  world.  The  operations  of  the  government  affect 
the  interest  of  every  person  living  within  the  jurisdiction  of 
the  United  States.  Its  organization  embraces  stations  and 
centers  of  work  located  in  every  city  and  in  many  local  sub- 
divisions of  the  country.  Its  gross  expenditures  amount  to 
billions  annually.  Including  the  personnel  of  the  military  and 
naval  establishments,  more  than  half  a  million  persons  are  re- 
quired to  do  the  work  imposed  by  law  upon  the  executive 
branch  of  the  government. 

"This  vast  organization  has  never  been  studied  in  detail  as 
one  piece  of  administrative  mechanism.  Never  have  the 
foundations  been  laid  for  a  thorough  consideration  of  the  re- 
lations of  all  its  parts.  No  comprehensive  effort  has  been 
made  to  list  its  multifarious  activities  or  to  group  them  in  such 
a  way  as  to  present  a  clear  picture  of  what  the  government  is 
doing.  Never  has  a  complete  description  been  given  of  the 
agencies  through  which  these   activities   are  performed.     At 

vii 


viii  FOREWORD 

no  time  has  the  attempt  been  made  to  study  all  of  these  activ- 
ities and  agencies  with  a  view  to  the  assignment  of  each  activ- 
ity to  the  agency  best  fitted  for  its  performance,  to  the  avoid- 
ance of  duplication  of  plant  and  work,  to  the  integration  of  all 
administrative  agencies  of  the  government,  so  far  as  may  be 
practicable,  into  a  unified  organization  for  the  most  effective 
and  economical  dispatch  of  public  business." 

To  lay  the  basis  for  such  a  comprehensive  study  of  the  or- 
ganization and  operations  of  the  national  government  as  Pres- 
ident Taft  outlined,  the  Institute  for  Government  Research 
has  undertaken  the  preparation  of  a  series  of  monographs,  of 
which  the  present  study  is  one,  giving  a  detailed  description  of 
each  of  the  fifty  or  more  distinct  services  of  the  government. 
These  studies  are  being  vigorously  prosecuted,  and  it  is  hoped 
that  all  services  of  the  government  will  be  covered  in  a  com- 
paratively brief  space  of  time.  Thereafter,  revisions  of  the 
monographs  will  be  made  from  time  to  time  as  need  arises,  to 
the  end  that  they  may,  as  far  as  practicable,  represent  current 
conditions. 

These  monographs  are  all  prepared  according  to  a  uniform 
plan.  They  give:  first,  the  history  of  the  establishment  and 
development  of  the  service;  second,  its  functions,  described 
not  in  general  terms,  but  by  detailing  its  specific  activities; 
third,  its  organization  for  the  handling  of  these  activities; 
fourth,  the  character  of  its  plant;  fifth,  a  compilation  of,  or 
reference  to,  the  laws  and  regulations  governing  its  operations; 
sixth,  financial  statements  showing  its  appropriations,  expen- 
ditures and  other  data  for  a  period  of  years ;  and  finally,  a  full 
bibliography  of  the  sources  of  information,  official  and  private, 
bearing  on  the  service  and  its  operations. 

In  the  preparation  of  these  monographs  the  Institute  has 
kept  steadily  in  mind  the  aim  to  produce  documents  that  will 
be  of  direct  value  and  assistance  in  the  administration  of  public 
affairs.  To  executive  officials  they  offer  valuable  tools  of  ad- 
ministration. Through  them,  such  officers  can,  with  a  min- 
imum of  effort,  inform  themselves  regarding  the  details,  not 
onlv  of  their  own  services,  but  of  others  with  whose  facilities, 
activities,  and  methods  it  is  desirable  that  they  should  be  fa- 
miliar. Under  present  conditions  services  frequently  engage 
in  activities  in  ignorance  of  the  fact  that  the  work  projected 
has  already  been  done,  or  is  in  process  of  execution  by  other 
services.  Many  cases  exist  where  one  service  could  make  ef- 
fective use  of  the  organization,  plant  or  results  of  other  serv- 


FOREWORD  ,  ix 

ices  had  they  knowledge  that  such  facihties  were  in  existence. 
With  the  constant  shifting  of  directing  personnel  that  takes 
place  in  the  administrative  branch  of  the  national  government, 
the  existence  of  means  by  which  incoming  officials  may  thus 
readily  secure  information  regarding  their  own  and  other  serv- 
ices is  a  matter  of  great  importance. 

To  members  of  Congress  the  monographs  should  prove  of 
no  less  value.  At  present  these  officials  are  called  upon  to 
legislate  and  appropriate  money  for  services  concerning  whose 
needs  and  real  problems  they  can  secure  but  imperfect  infor- 
mation. That  the  possession  by  each  member  of  a  set  of 
monographs,  such  as  is  here  projected,  prepared  according  to 
a  uniform  plan,  will  be  a  great  aid  to  intelligent  legislation 
and  appropriation  of  funds  can  hardly  be  questioned. 

To  the  public,  finally,  these  monographs  will  give  that 
knowledge  of  the  organization  and  operations  of  their  gov- 
ernjTient  which  must  be  had  if  an  enlightened  public  opinion 
is  to  be  brought  to  bear  upon  the  conduct  of  governmental 
affairs. 

These  studies  are  wholly  descriptive  in  character.  No  at- 
tempt is  made  in  them  to  subject  the  conditions  described  to 
criticism,  nor  to  indicate  features  in  respect  to  which  changes 
might  with  advantage  be  made.  Upon  administrators  them- 
selves falls  responsibility  for  making  or  proposing  changes 
which  will  result  in  the  improvement  of  methods  of  adminis- 
tration. The  primary  aim  of  outside  agencies  should  be  to 
emphasize  this  responsibility  and  facilitate  its  fulfillment. 

\\'hile  the  monographs  thus  make  no  direct  recommenda- 
tions for  improvement,  they  cannot  fail  greatly  to  stimulate 
efforts  in  that  direction.  Prepared  as  they  are  according  to  a 
uniform  plan,  and  setting  forth  as  they  do  the  activities,  plant, 
organization,  personnel  and  laws  governing  the  several  serv- 
ices of  the  government,  they  will  automatically,  as  it  were, 
reveal,  for  example,  the  extent  to  which  work  in  the  same  field 
is  being  performed  by  different  services,  and  thus  furnish  the 
information  that  is  essential  to  a  consideration  of  the  great 
question  of  the  better  distribution  and  coordination  of  activi- 
ties among  the  several  departments,  establishments,  and  bu- 
reaus, and  the  elimination  of  duplications  of  plant,  organiza- 
tion and  work.  Through  them  it  will  also  be  possil)le  to  sub- 
ject any  particular  feature  of  the  administrative  work  of  the 
government  to  exhaustive  study,  to  determine,  for  example, 
what  facilities,  in  the  way  of  laboratories  and  other  plant  and 


X  FOREWORD 

equipment,  exist  for  the  prosecution  of  any  line  of  work  and 
where  those  facilities  are  located;  or  what  work  is  being  done 
in  any  field  of  administration  or  research,  such  as  the  promo- 
tion, protection  and  regulation  of  the  maritime  interests  of  the 
country,  the  planning  and  execution  of  works  of  an  engineer- 
ing character,  or  the  collection,  compilation  and  publication  of 
statistical  data,  or  what  differences  of  practice  prevail  in  re- 
spect to  organization,  classification,  appointment,  and  promo- 
tion of  personnel. 

To  recapitulate,  the  monographs  will  serve  the  double  pur- 
pose of  furnishing  an  essential  tool  for  efficient  legislation,  ad- 
ministration and  popular  control,  and  of  laying  the  basis  for 
critical  and  constructive  work  on  the  part  of  those  upon  whom 
responsibility  for  such  work  primarily  rests. 

Whenever  possible  the  language  of  official  statements  or  re- 
ports has  been  employed,  and  it  has  not  been  practicable  in  all 
cases  to  make  specific  indication  of  the  language  so  quoted. 


CONTENTS 

CHAPTER  PAGK 

Foreword 

I,     History  i 
The  Railroad  Situation  in  Alaska  Prior  to  the  Creation 

of  the  Commission i 

Period  Prior  to  the  Passage  of  the  Act  of  1898  ...  2 

Period   of   Private   Construction,    1898-1908    ....  5 

Movement  for  Construction  of  a  Government  Railroad  9 

The  Commission 13 

Period  of  the  Survey 13 

Initial   Construction   Period 18 

Acquisition  of   Supplies   and  Equipment 18 

Transportation  of  Supplies  and   Equipment    ....  21 

Distribution  of  Supplies  and  Equipment 22 

Construction -23 

Purchase   of   Alaska   Northern   Railroad 26 

Development  of  Trafific 'Z'j 

Period  of  War-Time  Retardation  of  Construction   .      .  32 

Post-War   Period   of    Reorganization 34 

Conclusion         37 

Difficulties  Due  to  Physical  Causes 38 

Difficulties  Arising  from  Economic  Consequences  of  the 

War 38 

Fiscal  Difficulties 39 

Earning  Possibilities  of  the  Railroad 43 

II.    Activities  45 

Construction  Activities 46 

Terminal  Facilities 47 

Telephone   and  Telegraph   Lines 47 

Wagon   Roads 48 

Rehabilitation  of   Purchased  Railroads 48 

Operation 49 

Operation  of  Railroad 49 

Operation   of   Coal    Mines 51 

Operation   of   Docks 53 

Operation  of  Power  Plants 53 

Operation  of  Other  Services 54 

Maintenance 54 

Development  of  Traffic 55 

xi 


xii  CONTENTS 

CHAPTER  PAGE 

III.    Organization  59 

Administration 62 

Divisions 63 

Southern 63 

Northern 64 

Supply   _ 65 

Accounting 65 

Purchasing 66 

Personnel 66 

APPENDIX 

1.  Outline   of   Organization 67 

2.  Classification  of  Activities 76 

3.  Publications 79 

4.  Laws 81 

(A)  Index    to    Laws    and   Important    Executive    Orders 
and  Letters 8r 

(B)  Compilation   of  Laws 84 

(C)  Important  Executive  Orders  and  Letters  ....  90 

5.  Financial  Statements 97 

Appropriations 98 

Expenditures 98 

6.  Bibliography 99 

Index 121 


THE  ALASKAN  ENGINEERING  COM- 

MISSION:     ITS  HISTORY,  ACTIVITY, 

AND  ORGANIZATION 

CHAPTER  I 

HISTORY 

The  Alaskan  Engineering  Commission,  an  agency  under  ihe 
executive  direction  of  the  Secretary  of  the  Interior,  has  been 
entrusted  with  the  work  of  survey,  location,  construction,  and 
operation  of  the  government  railroad  in  the  territory  of  Alaska. 
It  also  has  the  direction  of  all  the  collateral  and  supplementary 
activities  necessarily  involved  in  an  operation  of  such  magni- 
tude. 

The  Railroad  Situation  in  Alaska  Prior  to  the  Creation 
of  the  Commission.  The  creation  of  the  Alaskan  En- 
gineering Commission  was  the  culmination  of  several  years' 
discussion  and  agitation  on  the  problem  of  the  development  of 
Alaskan  resources  through  an  adequate  railroad  system.  In 
view  of  the  almost  limitless  mineral  weaJlth  of  this  territory, 
its  valuable  jfisheries  and  fur  trade,  and  the  uncharted  possi- 
bilities in  its  arable  and  grazing  lands  and  in  lumbering,  the 
failure  of  private  initiative  and  capital  to  supply  sufficient  rail- 
road facilities  for  exploitation  of  this  region  and  the  ultimate 
assumption  of  responsibility  by  the  federal  government  re- 
quires exposition.  The  explanation  lies  in  the  peculiar  rail- 
road history  of  Alaska,  which  is  therefore  briefly  outlined  in 
the  next  few  sections.  Such  a  history  naturally  falls  into 
three  periods.  The  first  period,  extending  in  point  of  time 
from  the  beginning  of  civil  government  in  1885  to  the  act  of 


2  ALASKAN  ENGINEERING  COMMISSION 

May  14,  1898,  which  first  made  provision  for  rights  of  way  for 
railroads,  was  characterized  by  a  transition  from  dependence 
upon  water  transportation  tO'  recognition  of  the  necessity  for 
railroads  as  an  aid  in  the  development  of  the  territory.  The 
second  period,  beginning  with  the  enactment  of  the  act  of 
1898,  was  the  period  of  active  construction  and  promotion  of 
railroads  through  private  initiative  and  capital.  The  third 
period,  beginning  with  the  failure  of  several  of  the  roads  in 
1908,  was  characterized  by  cumulative  evidence  that  under  the 
established  government  policy  of  taxation  of  the  pioneer  rail- 
roads and  of  withholding  coal  lands  from  private  exploitation, 
private  capital  would  not  be  able  to  provide  the  railroad  facil- 
ities required  for  the  development  of  Alaska.  In  this  period 
a  growing  demand  for  federal  intervention  culminated  in  the 
creation  of  the  Alaskan  Engineering  Commission.  Each  of 
the  above  periods  will  be  discussed  briefly  in  the  pages  which 
follow. 

Period  Prior  to  Passage  of  the  Act  of  i8q8.  In  the  first 
few  years  following  the  creation  of  a  civil  government  for 
Alaska  there  is  little  evidence  of  a  realization  of  the  need 
of  railroads  either  for  general  purposes  of  commerce  or  as  an 
aid  to  the  rapid  development  of  the  territory.  Consideration 
of  a  railroad  project  for  Alaska  is  indicated  in  the  Congres- 
sional Record  of  March  17,  1886,^  when  a  bill  ^  was  referred 
to  the  Committee  on  Foreign  Relations  "to  facilitate  the  settle- 
ment and  develop  the  resources  of  the  Territory  of  Alaska, 
and  open  an  overland  and  commercial  route  between  the 
United  States,  Asiatic  Russia  and  Japan."  This  bill  was 
referred  by  the  committee  to  the  Department  of  the  Interior 
for  a  report  on  the  feasibility  of  the  project.  A  report  thereon 
was  submitted  by  the  Director  of  the  Geological  Survey  under 
date  of  May  21,  1886,  in  which  it  was  stated  that  "the  in- 
formation on  record  bearing  on  the  question  does  not  indicate 
any  greater  obstacles  to  the  construction  of  such  a  line  than 

^Vol.  27,  p.  2427,  49  cong.  2  sess.,   (1886). 
2S.  Bill  1907. 


HISTORY  3 

those  already  overcome  in  transcontinental  railroad  building 
and  this  being  true  the  construction  of  the  proposed  line  must 
be  pronounced  feasible.  .  .  .  The  Director  does  not  feel  called 
upon  to  express  any  opinion  as  to  the  wisdom  of  constructing 
the  railroad  under  consideration."  ^  Nothing  further  appears 
in  the  records  of  Congress  concerning  this  bill,  and  it  may  be 
inferred  that  it  was  permitted  to  die  in  committee.  But  though 
the  introduction  of  this  bill  indicates  realization  in  some 
quarters,  even  at  this  early  date  of  the  need  of  a  railroad  for 
Alaska,  one  so  qualified  to  speak  of  the  needs  of  the  district 
as  its  Governor  wrote  in  1884  that  "all  travel  and  transporta- 
tion in  Alaska  is  and  for  years  must  continue  to  be  by  water."  ^ 
This  view  was  natural  in  contemplation  of  the  physical  fea- 
tures of  Alaska  whose — 

southerly  seaboard,  presenting  a  front  of  over  2400  miles  to 
the  Pacific,  abounds  in  good  natural  harbors,  and  all  these, 
except  the  head  of  Cook  Inlet,  are  ice  free  throughout  the 
year.  A  series  of  high  ranges  skirting  the  Pacific,  indeed, 
forms  a  serious  barrier  to  inland  travel,  but  these  mountains 
are  broken  by  several  transverse  valleys  and  passes,  giving 
access  to  the  interior.  Beyond  this  mountain  system  is  an 
area  of  lesser  relief,  a  rolling  upland  with  many  broad  valleys, 
offering  no  physical  obstacles  to  lines  of  communication.  This 
inland  province  is  drained  to  the  Bering  Sea  by  the  Great 
Yukon  and  Kuskokwim  Rivers  which  with  their  tributaries 
afford  some  5000  miles  of  water  navigable  to  river  steamers.^ 

It  can  be  readily  understood  that  with  nature  thus  favoring 
water  transportation,  there  could  be  but  slow  development  of 
railroad  transportation,  particularly  when  the  small  population 
is  considered.  The  total  population  in  1890  was  but  31,795, 
of  which  only  4303  were  whites,  and  this  small  number  was 
scattered  over  an  area  one-fifth  of  the  total  area  of  the  United 
States.     Consequently,  it  is  not  surprising  that  "a  steamship 

'49  cong.  2  sess.,  S.  Misc.  doc.  22,  p.  2. 
*  Governor  of  Alaska,  Annual  report,  1884,  p.  7. 
°  Brooks,  "The  development  of  Alaska  by  government  railroads," 
Quarterly  Journal  of  Economics,  XXVIII,  586-96. 


4  ALASKAN  ENGINEERING  COMMISSION 

is  to  Alaska  what  the  railroad  train  is  to  the  people  of  the 
United  States."  ®  Even  when  the  difficulties  involved  in  the 
administration  of  so  large  an  area  brought  the  problem  of 
more  adequate  transportation  to  the  attention  of  the  Governor, 
his  perplexities  in  seeking  to  curb  smuggling  and  "boot-leg- 
ging" led  only  to  a  modest  request,  as  late  as  in  1889,  for  a 
light  draught  vessel  for  the  use  of  the  civil  government.^ 
Even  three  years  later  it  was  reported  that  not  only  had 
no  railroads  been  built  but  that  none  were  even  contemplated 
seriously.® 

The  first  real  impetus  to  railroad  construction  came  in  the 
period  following  the  discovery  of  gold  in  the  Klondike  in 
1886.  "The  horde  of  gold  seekers  that  swarmed  through  the 
passes  of  the  coast  range  in  1897  and  1898  transported  their 
supplies  by  sleds  and  on  their  backs.  It  is  estimated  that  by 
this  primitive  means  upward  of  30,000  tons  of  freight  were 
(Carried  inland  at  a  cost,  allowing  fair  wages  for  the  labor, 
of  probably  $15,000,000  to  $16,000,000.  About  an  equal 
amount  of  freight  was  sent  to  the  interior  by  steamers  up  the 
Yukon.''  ^  In  consequence  of  this  gold  rush,  the  census  of 
1900  reported  a  population  of  63,592,  of  which  30.507  were 
whites.  The  population  of  Alaska  was  thus  practically 
doubled  in  the  decade  of  1890- 1900,  while  the  white  popula- 
tion in  this  decade  increased  seven  fold.  Another  factor  was 
the  growth  of  knowledge  of  Alaska's  resources  and  industrial 
possibilities,  mainly  as  a  result  of  governmental  investigations, 
but  also  as  an  indirect  result  of  the  general  public  interest  at- 
tending the  discovery  of  gold  in  the  Klondike.  It  was  rapidly 
becoming  clear  at  this  time  that  aside  from  the  long 
recognized  wealth  in  the  fur  and  mineral  trade,  there  were 
remarkable  potentialities  in  agriculture,  herding,  lumbering, 
etc. 

As  a  consequence  of  these  influences,  requests  were  made  of 

•^  Governor  of  Alaska,  Annual  report,  1885,  p.   14. 
''Ibid.,  1889,  p.  26. 
^  fbtd.,  1891,  p.  34. 
^  Brooks,  supra. 


HISTORY  5 

Congress  in  1897  ^^^  1898  by  various  promoting  groups  to 
grant  franchises  and  rights  of  way  for  railroad  projects.^*^ 
These  special  requests  Congress  refused,  but  it  passed  a  gen- 
eral law  aiming  to  provide  for  railroad  building.^ ^  The  en- 
actment of  this  law  marks  the  beginning  of  the  period  of 
railroad  construction.^ - 

Period  of  Priz^atc  Construction,  iSp8-ipo8.  The  act  of 
May  14,  1898,  provided  for  the  granting  of  a  right  of  way 
and  made  due  provision  also  for  sufficient  land  for  stations 
and  terminals,  as  well  as  timber  and  stone  for  construction, 
to  any  railroad  company  "duly  organized  under  the  laws  of 
any  state  or  territory  or  by  the  Congress  of  the  United  States." 
Several  companies,  immediately  after  the  passage  of  the  act  or 
in  anticipation  of  its  passage,  made  preliminary  filings  under 
the  provisions  of  the  law.  In  the  brief  period  between  Sep- 
tember, 1897,  and  March,  1899,  no  less  than  eleven  companies 
made  filings  for  railroad  routes  totalling  about  673 
miles. ^^ 

Actual  construction  on  the  first  railroad  was  begun  in  the 
summer  of  1898  to  furnish  access  to  the  Klondike  gold  fields, 
from  tidewater  at  Skagway  in  Alaska  to  the  navigable  waters 
of  the  Yukon  Basin  at  White  Horse  in  Canada.  By  1901, 
no  miles  of  this  narrow-gauge  railroad  had  been  constructed, 
of  which  however,  only  twenty  miles  were  in  Alaska.  The 
cost  of  carriage  over  the  passes  was  reduced  by  the  building 
of  this  railroad  from  the  rate  of  thirty  cents  to  $1  per  pound, 

^"  House  Committee  on  Territories,  60  cong,  i  sess.,  Railroads  in 
Alaska,  Hearings,  p.  62. 

"Act  of  May  14,  1898;  30  Stat.  L.,  409. 

^-  Not  only  does  the  year  1898  mark  the  beginning  of  the  period  of 
railroad  construction,  but  also  the  period  of  federal  action  in  the 
wider  sphere  of  Alaskan  transportation  development.  The  construc- 
tion of  a  trail  was  begun  in  that  year  by  the  War  Department  from 
Fort  Liscum  at  Valdez  on  the  south  coast  northeastwardly  through 
the  Copper  River  Valley  to  Fort  Egbert  at  Eagle  on  the  Yukon  River 
near  the  International  boundary  line.  (See  p.  loi  House  Hearings 
on  the  Construction  of  Alaska  R.R.  July,  1919). 

^•'' As  calculated  from  House  Document  1201,  60  cong.  2  sess.  Of 
this  projected  mileage  only  233.4  miles  was  being  operated  or  under 
construction  on  Dec.  5,  1908. 


6  ALASKAN  ENGINEERING  COMMISSION 

which  had  been  the  cost  of  carriage  on  men's  backs,  to  4>4 
cents  by  rail.  Yet  in  the  face  of  this  demonstration  of  re- 
duced costs,  there  was  no  further  significant  construction  for 
several  years.  ^^ 

The  Governor  of  Alaska  attributed  this  situation  to  the  un- 
favorable land  laws  which  provided  no  clear  title  to  the  oc- 
cupier of  land  without  an  exessive  expenditure.  This  factor, 
he  alleged,  prevented  the  immigration  into  the  territory  of 
any  large  permanent  population,  and  consequently  capital  was 
slow  to  take  the  risks  of  pioneer  railroad  construction.  "Their 
greatest  obstacle,"  wrote  the  Governor  in  1901,  speaking  of 
the  difficulties  facing  railroad  capitalists,  "is  their  inability  to 
encourage  the  people  to  move  in  and  fill  up  the  country  as  they 
build  their  road.  .  .  .  The  people  will  not  come  until  they 
can  own  the  land  and  they  cannot  own  it  until  Congress  makes 
up  its  mind  to  allow  them."  ^^ 

This  difficulty  was  removed  in  1903  by  the  passage  of  a 
generous  homestead  law  under  the  terms  of  which  a  home- 
steader could  select  a  claim  of  320  acres  and  by  compliance 
with  certain  simple  regulations  as  to  lines,  recording,  etc., 
be  assured  of  a  patent  for  the  land.  Whether  as  a  consequence 
of  this  liberalization  of  the  homestead  laws  or  of  other  factors, 
the  precise  determination  of  which  is  not  pertinent  here,  there 
was  renewed  activity  in  railroad  construction  in  the  following 
years.  The  optimism  at  this  time  is  well  illustrated  by  the 
following  quotation  from  an  address  by  the  President  of  the 
Alaska  Central  Railway  Company  to  the  stockholders  in  Sep- 
tember, 1903: 

I  am  free  to  say  that  in  all  my  railroad  experience,  cover- 
ing a  period  of  thirty  years.  I  have  never  known  a  railroad  of 
corresponding  length  to  tap  a  country  supplied  with  such  a 
diversity  and  abundance  of  natural  resources  as  that  to  be 
opened  by  that  Alaska  Central  Railway.  ...  I  am  convinced 
that  the  extraordinary  earning  powers  of  the  road  will  enable 

^*  Governor  of  Alaska,  Annual  Report  1901,  p.  34. 
^^  Ibid.,  1902,  p.  16. 


HISTORY  7 

it  to  bear  all  fixed  charges  and  pay  large  dividends  on  both 
the  preferred  and  common  stock. ^^ 

So  noticeable  was  the  progress  of  railroad  construction  at 
this  time  that  the  Governor  of  Alaska  turned  from  his  former 
desire  to  encourage  new  enterprise  to  anxiety  over  the  problem 
of  regulation  of  existing  enterprises,  and  asked  in  his  annual 
report  to  the  Secretary  of  the  Interior :  "Will  it  be  a  wise 
public  policy  in  view  of  the  serious  questions  that  are  now 
connected  with  raihvay  carrying,  to  allow  these  corporations 
to  construct  these  lines  of  road  across  the  public  domain  with- 
out any  restriction  whatever?"  ^^ 

While  there  was  this  activity  in  railroad  construction  from 
1903  to  1907,  hearings  were  being  held  at  intervals  in  Wash- 
ington at  the  request  of  various  promoting  companies  for 
governmental  aid  in  their  railroad  projects  for  Alaska,  either 
in  the  form  of  relief  from  federal  taxation,  governmental 
subsidies,  exclusive  grants  and  rights,  or  a  guarantee  of 
interest  on  the  bonds  of  the  companies.  In  these  proposals 
may  be  detected  the  germ  of  the  later  proposals  for  federal 
construction.  Although  nothing  was  done  at  this  time  by 
Congress,  the  hearings  ^^  served  to  bring  to  public  attention 
the  various  factors  which  were  making  successful  private 
building  and  operation  of  railroads  difficult  in  Alaska.  There 
were  the  usual  general  charges  of  bad  management,  excessive 
promotion,  unsound  policies,  and  waste  of  funds.  More 
specific  allegations  w^ere  to  the  effect  that  there  had  been  many 
costly  errors  due  to  engineers'  differences  of  opinion  as  to 
the  most  feasible  routes,  and  that  much  delay  in  construction 
had  followed  controversies  between  rival  railroad  companies 
over  their  respective  rights  of  way. 

1^  President  of  the  Alaska  Central  Railway  Co.,  Annual  report, 
Seattle,  Sept.  29,   1903,  p.  2. 

^^  Governor,  Annual  report,   1905,  p.  26. 

^*  House  Committee  on  Territories,  Railroads  in  Alaska,  Hearings, 
59  Cong.,  I  sess.,  1906;  Senate  Committee  on  Territories,  Railroad 
and  Telegraph  and  Telephone  Lines  in  Alaska,  Hearings  1907 ;  also 
House  Committee  on  Territories,  Railroad  Transportation  in  Alaska, 
Hearing  of  the  Western  Alaska  Construction  Co.,  March  11,   1904. 


8  ALASKAN  ENGINEERING  COMMISSION 

It  was  pointed  out,  however,  that  the  greatest  handicap  to 
railroad  development  in  Alaska  lay  in  the  general  misunder- 
standing in  the  states  of  conditions  in  the  territory,  so  that 
the  successful  negotiation  of  securities  was  difficult  if  not,  at 
times,  impossible.  Often  it  was  necessary  to  sell  the  securities 
on  a  basis  of  a  considerable  discount,  thus  imposing  an  exces- 
sive initial  indebtedness  on  the  enterprises.  One  company 
spent  a  considerable  sum  in  advertising  and  publicity ;  its 
representative  stating  before  the  House  Committee  on  Ter- 
ritories in  1905 : 

When  the  Valdez,  Copper  River  and  Yukon  Railroad  Com- 
pany attempted  to  negotiate  its  securities  it  found  that  nobody 
knew  anything  about  Alaska.  They  all  supposed  it  was  a 
place  almost  of  solid  snow  and  ice,  and  therefore,  in  the  East 
especially,  nobody  would  take  notice  of  au}^  proposition.  The 
Valdez,  Copper  River  and  Yukon  Railroad  Company  went  on 
and  spent  nearly  $40,000  in  photographing  that  countrv.  .  .  . 
We  found  no  interest  in  this  subject  anywhere  in  the  United 
States  and  the  result  was  that  we  paid  agents  and  solicitors 
to  go  before  Chambers  of  Commerce  and  Boards  of  Trades 
throughout  the  United  States,  and  I  believe  we  succeeded  in 
getting  passed  in  the  various  centers  of  trade  throughout  the 
United  States  something  like  two  hundred  petitions  and  resolu- 
tions addressed  to  Congress  imploring  Congress  to  do  some- 
thing for  the  people  of  Alaska.  All  that  cost  a  great  deal  of 
money.  ^^ 

It  has  been  pointed  out  also  -^  that  the  federal  annual  rail- 
road tax  of  $100  a  mile,  though  much  less  than  the 
lowest  tax  in  the  states,  was  still  a  serious  problem  for  pioneer 
lines  with  heavy  expenses  and  light  traffic.  Moreover,  most 
of  the  railroads  which  were  in  operation  were  but  stubs  that 
did  not  reach  the  possible  sources  of  traffic. 

As  a  consequence  of  all  these  difficulties,  several  of  the 
railroad  companies  were  in  a  vulnerable  position  when  the 
panic  of  1907  came.     The  Alaska  Central  Railroad  went  into 

'"House  Committee  on  Territories,  Hearings,  1905,  p.  29. 
^  Brooks,  supra. 


HISTORY  9 

the  hands  of  a  receiver  in  1908  "^  and  the  Alaska  Home  Rail- 
way suspended  work.  A  few  years  later  it  was  reported^^ 
that  none  of  the  existing  lines  were  earning  interest  charges, 
while  some  were  not  even  paying  operating  charges.  Yet  it 
must  be  remembered  that  rates  were  already  almost  prohib- 
itively high.  In  1909  the  per  capita  transportation  charge  for 
every  inhabitant  in  the  placer  districts  of  Alaska  was  estimated 
at  $350  and  the  total  charge  was  equal  to  approximately  half 
the  value  of  the  entire  gold  output  of  the  year.^^  Any  further 
construction  by  private  enterprise  and  capital  to  develop  the 
interior  resources  of  Alaska  without  some  subsidy  or  guarantee 
by  the  government  was  therefore  beyond  the  range  of  pos- 
sibility. 

Movement  for  Construction  of  a  Government  Railroad. 
The  year  1908  may  be  taken  as  marking  the  first  year  of  this 
period,  since  it  was  then  that  the  Governor  of  Alaska  urged 
the  appointment  of  a  government  commission  to  study  avail- 
able routes  for  a  railroad  from  the  coast  to  the  interior,  part 
of  the  cost  of  operation  of  which  was  to  be  assumed  by  the 
government.^* 

After  this  date  the  movement  for  federal  assistance  gathered 
momentum  until  the  mere  probability  of  its  success  was  in 
itself  sufficient  to  discourage  new  construction  by  private  com- 
panies.^^    The  lack  of  definite  federal  policy  concerning  the 

-^  The  Alaska  Central  resumed  construction  under  a  receivership  in 
1909  only  to  be  sold  by  order  of  the  district  court  in  1910. 

--  Governor  of  Alaska,  Annual  report,  1912,  p.  22. 

2^  Brooks,  The  mining  industry  (Alaska)  1909.  U.  S.  Geological 
Survey  Bulletin  442,  pp.  26-7    (1910). 

-*  Federal  action  on  the  general  transportation  development  of 
Alaska  began  much  earlier.  The  construction  of  a  trail  was  begun 
by  the  War  Department  in  1898  from  Fort  Liscum  at  Valdez  to 
Fort  Egbert  at  Eagle  (see  footnote  12).  In  1902  a  wagon  route 
was  surveyed  over  this  route  and  in  1904,  following  the  recom- 
mendation of  a  Congressional  delegation  which  visited  Alaska  in 
1903,  the  appointment  of  the  Alaska  Road  Commission  was  author- 
ized. In  1906  survey  of  a  land  route  was  authorized  from  Fair- 
banks to  Council  City.  These  surveys  made  by  the  Alaska  Road 
Commission  were  anticipatorv  of  later  trans-Alaska  railroads. 

^^  House  Committee  on  Territories,  Hearings  on  Alaska  Short 
Line  R.  R.  in  Alaska,  April  i,  1910. 


lo        ALASKAN  ENGINEERING  COMMISSION 

disposition  of  the  public  domain  and  coal  lands  of  Alaska  also 
began  to  have  an  unfortunate  effect  upon  such  new  construc- 
tion as  might  have  been  contemplated  and  was,  moreover,  a 
tremendous  handicap  upon  the  railroads  which  were  then  in 
operation  because  of  the  difficulty  of  obtaining  coal  from  local 
sources. 

The  railroad  problem  became  thus  entangled  with  the  gen- 
eral conserv'^ation  controversy.  The  outcome  was  the  realiza- 
tion that  private  capital  would  not  build  adequate  transporta- 
tion facilities  to  the  interior  of  Alaska  unless  the  coal  mines 
and  mineral  deposits  were  opened  for  private  exploitation  and 
that,  consequently,  if  conservation  for  the  nation  of  this  coal 
and  mineral  wealth  were  desired,  the  government  itself  would 
be  obliged  to  construct  the  necessary  means  of  transportation. 

Several  bills  were  introduced  in  the  sixty-second  Congress 
to  solve  these  problems;  also  a  bill  to  provide  a  territorial 
legislature  for  Alaska.  The  final  result  was  the  passage  of 
"an  act  to  create  a  legislative  assembly  in  the  Territory  of 
Alaska,  to  confer  legislative  powers  thereon  and  for  other 
purposes,"  ^^  the  eighth  section  of  which  provided  for  the 
appointment  of  a  commission  by  the  President  to  conduct  an 
examination  into  the  transportation  question  in  the  Territory 
of  Alaska  as  recommended  in  1908  and  1909  by  the  Governor 
of  Alaska. 

In  accordance  with  this  act.  President  Taft  appointed  the 
following  commission:  Maj.  Jay  J.  Morrow,  Corps  of  Engin- 
eers, United  States  Army,  Chairman ;  Alfred  H.  Brooks, 
Geologist  in  charge  of  Division  of  Alaskan  Mineral  Resources, 
Geological  Survey,  vice  chairman;  Leonard  M.  Cox,  Civil 
Engineer,  U.  S.  Navy;  and  Colvin  M.  Ingersoll,  consulting 
railroad  engineer.  New  York. 

The  report  of  this  commission,  which  was  submitted  to  the 
President  on  January  20,  191 3,  may  be  summarized  as  fol- 
lows :  ^ 

28  Act  of  August,  24,  igi2  (37  Stat.  L.,  517). 
^'^  62  cong.  3  sess.,  H.  Doc.  1346.  p.  8  et  seq. 


HISTORY  II 

1.  That  railway  connections  with  open  ports  on  the  Pacific 
were  necessary  for  utilization  of  the  fertile  regions  of  the 
Alaskan  interior  and  the  mineral  resources  and  to  open  up  a 
large  region  to  the   homesteader,  the  prospector,  and  the  miner. 

2.  That  construction  of  two  independent  railroad  systems 
was  advisable  to  be  ultimately  connected  and  supplemented 
as  future  conditions  made  necessary,  one  to  run  from  Cordova 
by  way  of  Chitina  to  Fairbanks  and  the  other  from  Seward 
around  Cook  Inlet  to  the  Iditarod  River,  with  a  total  cost 
of  $35,000,000  for  the  733  miles  of  new  construction  involved. 

3.  That  "assuming  the  necessity  of  earning  6  per  cent,  on 
the  capital  invested  the  road  could  be  operated  without  loss 
on  the  estimated  available  traffic,  at  a  passenger  rate  of  seven 
cents  per  mile  and  an  average  freight  rate  of  eight  cents  per 
ton-mile." 

4.  That  "an  average  freight  rate  exceeding  5  cents  per 
ton-mile  and  passenger  rate  in  excess  of  6  cents  per  mile 
would  defeat  the  immediate  object  of  the  railroad,  namely, 
the  expeditious  development  of  the  interior  of  Alaska  and, 
furthermore,  would  introduce  the  c|uestion  as  to  whether  or 
not  the  Seattle-Cordova-Fairbanks  freight  route  would  be  able 
to  compete  with  the  present  all-water  route  via  the  Yukon 
River  system,  except  on  shipments  in  which  the  time  element 
is  of  such  importance  as  to  warrant  the  payment  of  a  higher 
freight  rate." 

5.  That  the  annual  expenditures  of  the  road  could  be  re- 
duced materially  if  capital  could  be  secured  at  the  lower  rates 
of  interest  obtainable  under  a  government  guaranty  of  prin- 
cipal and  interest  on  bonded  indebtedness  or  if  the  road  were 
constructed  by  the  government  itself. 

6.  That  although  this  railroad  development  "should  be 
undertaken  at  once  and  prosecuted  with  vigor,"  the  project 
was  not  feasible  without  some  plan  wdiich  would  provide  for 
low  transportation  rates  and  the  "consequent  rapid  settlement 
of  this  new  land  and  the  utilization  of  its  great  resources." 

This  report  was  sent  to  Congress  on  February  6,  19 13,  by 
President  Taft  with  his  opinion  that  "the  necessary  inference 
from  the  entire  report  is  that  in  the  judgment  of  the  com- 
mission its  recommendations  can  certainly  be  carried  out  only 
if  the  Government  builds  or  guarantees  the  construction  cost  of 
the  railroads  recommended.    If  the  government  is  to  giiarantee 


12         ALASKAN  ENGINEERING  COMMISSION 

the  principal  and  interest  of  the  construction  bonds,  it  seems 
clear  that  it  should  own  the  roads,  the  cost  of  which  it  really 
pays.  This  is  true  whether  the  government  itself  should 
operate  the  roads  or  should  provide  for  their  operation  by 
lease  or  operating  agreement.  I  am  very  much  opposed  to 
government  operation,  but  I  believe  that  government  owner- 
ship with  private  operation  under  lease  is  the  proper  solution 
of  the  difficulties  here  presented.  I  urge  the  prompt  and 
earnest  consideration  of  this  report  and  its  recommenda- 
tions." ^^ 

Subsequently  several  bills  were  introduced  in  Congress  to 
carry  out  the  recommendation  of  the  commission,  and  a  bill 
was  passed  entitled  "An  Act  to  authorize  the  President  of  the 
United  States  to  locate,  construct,  and  operate  railroads  in  the 
Territory  of  Alaska  and  for  other  purposes''  which  was 
approved  March  12,  1914.-^  (38  Stat.  L.,  305).  The  Presi- 
dent was  given  full  authority  to  designate,  locate,  and  con- 
struct the  routes  of  the  proposed  lines  of  railroad  and  the  nec- 
essary telephone  and  telegraph  lines ;  to  purchase  or  otherwise 
acquire  all  real  and  personal  property,  terminal  grounds,  right 
of  way,  equipment,  etc.,  which  were  essential  to  carry  out  the 
purpose  of  the  act;  to  fix  or  modify  rates;  to  establish  all 
necessary  rules  and  regulations;  and  in  general  to  perform  all 
things  incidental  to  the  success  of  the  tmdertaking.  The  only 
important  limitations  upon  the  President  were  that  the  road 
was  not  to  exceed  one  thousand  miles  in  the  aggregate,  that  it 
was  to  be  so  located  as  to  connect  one  or  more  of  the  open 
Pacific  Ocean  harbors  on  the  southern  coast  of  Alaska  with  the 
interior  navigable  waters  and  with  the  coal  fields,  and  that  the 
total  expenditure  was  not  to  exceed  $35,000,000.  The  sum  of 
$1,000,000  was  appropriated  to  be  immediately  available  for 
carrying  out  the  provisions  of  the  act. 

On  May  2,  1914,  the  President  directed  the  Secretary  of  the 
Interior  to  proceed  with  the  surveying  of  the  routes  for  the 

^'  Ibid.,  p.   II. 

*^  See  Appendix  4  for  text  of  this  bill. 


HISTORY  13 

railroad,  and  conferred  upon  him  "the  power  and  authority  to 
do  any  and  all  acts  necessary  thereto."  For  the  immediate 
direction  of  the  work,  a  commission,  designated  the  Alaskan 
Engineering  Commission  was  created  by  Presidential  appoint- 
ment composed  of  Lieutenant  Frederick  Mears,  "because  of  his 
experience  as  an  engineer  on  the  Great  Northern  under  Mr. 
J.  F.  Stevens,  and  later  in  the  construction  of  the  Panama 
Railroad  under  Col.  Goethals,"  Thomas  Riggs,  Jr.,  "because 
he  had  spent  many  years  in  Alaska  and  surveyed  the  Alaskan- 
Canadian  boundary  from  the  sea  to  the  Arctic  Ocean  and  was 
familiar  with  the  Alaskan  people  and  conditions  under  which 
work  can  be  done  in  Alaska,"  and  W.  C.  Edes,  "because  of 
over  35  years'  experience  in  locating  and  constructing  rail- 
roads in  the  far  West  for  the  Santa  Fe,  Southern  Pacific,  and 
other  railroad  companies."  ^'^  Formal  authorization  to  begin 
work  was  received  by  this  commission  from  the  Secretary 
of  the  Interior  on  May  8,  1914.^^ 

The  Commission.  The  history  of  the  commission  falls 
into  four  periods:  the  period  of  the  survey;  the  initial  period 
of  construction:  the  period  of  war  time  retardation  of  con- 
struction ;  and  the  post  war  period  of  reorganization  and  full 
resumption  of  activities. 

Period  of  the  Sun'ey.  As  indicated  above,  the  Secretary 
of  the  Interior  formally  authorized  the  commission  to  proceed 
with  its  work  on  i\Iay  8,  19 14.  In  general  terms,  the  first 
problem  then  facing  the  commission  was  "to  make  such  sur- 
veys ^^  and  compile  such  data  as  would  enable  the  President 
to  decide  on  the  most  available  route  over  which  to  build 
the  railroad." 

The  commission  found  at  the  beginning  of  its  work  that 

In  order  to  accomplish  the  objects  set  forth  in  the  act  of 
Congress  it  was  necessary  to  investigate  two  general  routes 

^^  House  Committee  on  Territories,  Bills,  Reports,  Hearings  and 
Acts  Alaska,   192 1,  p.  205. 

^^  See  Appendix  5   for  letter  of  authorization. 

^-  The  surveys  which  had  been  made  by  the  Railway  Commission 
were  not  in  sufficient  detail  for  the  purposes  of  construction. 


14         ALASKAN  ENGINEERING  COMMISSION 

from  the  coast  to  the  interior  of  Alaska,  namely,  the  eastern 
route  starting  from  Cordova  or  Valdez  and  extending  north- 
ward via  the  Copper  River,  Tonsina  River,  Delta  River,  and 
Tanana  Valley  to  the  vicinity  of  Fairbanks,  and  the  western 
route,  starting  from  Portage  Bay  or  Seward  and  following 
along  the  shores  of  Turnagain  and  Knik  Arms,  thence  north- 
ward through  the  Susitna  Valley  and  over  Broad  Pass  and 
down  the  Nenana  River  to  its  junction  with  the  Tanana,  and 
thence  by  one  of  several  routes  to  the  vicinity  of  Fair- 
banks.^^ 

Since  considerable  information  was  already  available  on 
the  eastern  route  there  was  planned  a  careful  preliminary 
sun^ey  and  estimate  of  the  western  route,  including  a  branch 
therefrom  to  the  Matanuska  coal  fields ;  a  survey  from  Chitina 
on  the  eastern  route  to  these  coal  fields;  and  a  reconnaissance 
from  the  western  route  into  the  Kuskowim  and  Iditarod  dis- 
tricts which  had  never  been  gone  over  in  anticipation  of  rail- 
road construction.  Supplementing  the  work  of  the  locating 
and  surveying  parties  whose  investigations  were  first  hand, 
an  analysis  was  made  of  previous  surveys  of  the  routes  or 
portions  of  them  and  modifications  were  made  in  accordance 
with  the  best  knowledge  then  obtainable.  At  times  there  was 
conflicting  testimony  on  important  matters,  and  the  commission 
then  made  arrangements  for  observation  and  verification  by 
its  own  representatives.  Consequently  through  surveys  of  its 
own  men  and  through  judicious  use  of  former  investigations, 
the  commission  was  enabled  to  compile  in  a  relatively  short 
time  the  facts  as  to  the  advantages  and  disadvantages  of 
alternative  routes. 

The  act  of  March  12,  19 14,  authorized  the  President 

To  purchase,  condemn,  or  otherwise  acquire  upon  such  terms 
as  he  may  deem  proper  any  other  line  or  lines  of  railroad  in 
Alaska  which  may  be  necessary  to  complete  the  construction  of 
the  line  or  lines  of  railroad  designated  or  located  by  him: 
Provided,  That  the  price  to  be  paid  in  case  of  purchase  shall 

^^  Alaskan  Engineering  Commission,  Reports  for  period  March  12, 
1914  to  Dec.  31,  1915,  p.  II. 


HISTORY  15 

in  no  case  exceed  the  actual  physical  value  of  the  railroad. 

To  supply  the  President  with  the  data  necessary  to  carry  out 

the  provisions  of  this  clause,  the  commission  examined  the 

following  three  railroads : 

Miles 
Copper  River  and  Northwestern  Railroad : 

Cordova  to  Kennicott  (standard  gange)  .  ,  .  195.0 
Alaska  Northern  Railroad : 

Seward  to  Kern  Creek,  a  point  near  the  head  of 

Turnagain  Arm   (standard  gauge) 70.8 

Tanana  Valley  Railroad: 

Fairbanks  and  Chena  to  Chatanika  (narrow  gauge)       46.0 

In  the  case  of  the  Copper  River  and  Northwestern  Rail- 
road, Avhich  was  the  most  active  standard-gauge  railroad  in 
Alaska,  an  examination  was  made  of  its  entire  length.  In- 
vestigation was  made  of  the  grades,  curvature,  bridges,  cost  of 
operation,  etc.  It  was  found  that  while,  in  general,  a  work- 
able railroad  existed,  bettemients  were  essential,  not  only  in 
anticipation  of  any  increased  future  traffic  but  also  to  reduce 
the  cost  of  operation  and  maintenance  even  under  existing 
traffic.  It  w^as  noted  that  if  economies  in  operation  and  main- 
tenance were  thus  introduced,  the  handicap  on  earning  power 
could  be  removed  of  the  abnormally  high  rates  of  12^  cents 
per  passenger  mile  and  from  35^  to  14^2  cents  per  ton  mile 
as  against  prevailing  rates  in  the  United  States  of  two  to 
four  cents  per  passenger  mile  and  one  cent  per  ton  mile. 

The  commission  found  the  condition  of  the  Alaska  North- 
ern Railroad  much  worse  than  that  of  the  Copper  River  and 
^Northwestern.  It  w^as  estimated  that  to  make  possible  the 
safe  operation  of  only  light  trains  from  Seward  to  Kem 
Creek,  an  immediate  expenditure  of  $500,000  would  be  re- 
quired, excluding  the  necessary  outlay  for  snowsheds,  deter- 
mination of  which  awaited  further  study  of  snow  conditions. 

In  regard  to  the  Tanana  Valley  Railroad,  which  was  a 
narrow-gauge  single  track  steam  railroad,  the  commission 
found  that  it  had  suffered  a  reduction  in  carninc-s  as  the 
mining  industry  had  decreased,  but  increased  traffic  could  be 
anticipated  if  coal  were  to  be  delivered  to  it  from  the  Nenana 


i6        ALASKAN  ENGINEERING  COMMISSION 

fields.  Even,  however,  with  the  existing  traffic,  the  net  earn- 
ings were  more  than  $22,000  annually.  As  to  the  physical 
condition  of  the  road,  it  was  found  that  the  equipment  was 
in  poor  condition  and  that  no  heavy  grading  had  been  under- 
taken in  the  original  construction. 

It  was  also  necessary  to  obtain  some  estimate  of  the  traffic 
possibilities  on  the  proposed  routes  for  the  government  rail- 
road. An  independent  investigation  into  the  resources  of  the 
tributary  country  was  not  only  obviously  beyond  the  range  of 
possibility  with  the  limited  time  and  means  at  hand,  but  also 
undesirable  if  considerable  duplication  of  effort  was  to  be 
avoided.  Personal  observation  of  the  members  of  the  com- 
mission was,  therefore,  supplemented  "by  examination  of  re- 
ports of  the  various  government  bureaus,  data  compiled  by 
chambers  of  commerce,  and  statistics  furnished  by  existing 
transportation  companies."  ^"*  It  was  found  that  not  only  was 
there  considerable  traffic  by  water,  much  of  which  could  be 
more  cheaply  handled  by  such  railroads  as  were  then  contem- 
plated but  that  the  creation  of  cheaper  transportation  facil- 
ities would  itself,  in  all  probability,  call  a  large  volume  of 
tonnage  into  existence. 

Since  there  had  been  considerable  difiference  of  opinion  as 
to  the  relative  merits  of  various  harbors,  the  members  of  the 
commission  visited  all  the  harbors  under  consideration  and 
supplemented  their  own  observations  with  the  information 
available  from  the  investigations  of  the  Railroad  Commission 
of  191 3,  the  U.  S.  Coast  and  Geodetic  Survey,  Alaskan  com- 
mercial bodies,  and  other  services.  Master  mariners  were 
also  consulted.  It  was  concluded  from  the  investigation  thus 
made  that  "at  any  of  the  harbors  considered  suitable  ter- 
minal facilities  can  be  created  without  excessive  cost,  and  that 
the  question  of  the  most  available  route  for  the  railroad  system 
to  iDest  develop  the  resoures  of  Alaska  is  not  dependable  on 
the  selection  of  any  particular  harbor."  ^^ 

"  Ibid.,  p.  62. 
85  Ibid.,  p.  76. 


HISTORY  17 

After  these  examinations  and  inves'tigations  had  been  com- 
pleted, estimates  of  cost  were  prepared  based  on  the  informa- 
tion obtained  from  the  field  surveys,  and  an  evaluation  of 
the  Alaska  Northern  Railroad  was  made  in  anticipation  of 
its  possible  purchase  by  the  government.  On  February  1 1 , 
19 1 5,  the  report  of  the  commission's  findings  was  transmitted 
to  the  President.  No  recommendation  was  made  as  to  the 
best  route  to  follow,  because 

this  commission  is  essentially  an  engineering  one,  organized 
to  handle  the  subject  along  technical  lines.  In  selecting  a 
route  other  questions  besides  strictly  engineering  ones  are  to 
be  considered.  The  commission  has  understood  that  their 
especial  mission  was  to  collect  the  evidence  and  present  it  in 
as  impartial  a  form  as  possible,  knowing  it  would  be  weighed 
carefully  and  acted  upon  wisely. ^*^ 


On  April  10,  191 5,  about  two  months  after  the  report  had 
been  submitted,  the  President  issued  an  Executive  Order  ^^ 
outlining  the  route  which  he  had  selected  and  directing  the 
Secretary  of  the  Interior  to  purchase  the  Alaska  Northern 
Railroad.  The  order  was  accompanied  by  a  letter  ^^  directing 
the  Alaskan  Engineering  Commission  to  proceed  with  the 
work  of  construction  of  the  railroad  as  located  in  the  Execu- 
tive Order  under  the  supervision  of  the  Secretary  of  the  In- 
terior, upon  whom  was  conferred  "full  power  and  authority 
to  do  any  and  all  acts  necessary  thereto."  One  mem1>er  of  the 
commission  was  to  be  designated  by  the  Secretary  as  its  chair- 
man to  have  "power  of  approval  or  disapproval  of  all  adminis- 
trative matters  connected  with  the  work  in  Alaska." 

There  was  apparently  some  doubt  as  to  the  exact  division  of 
authority  and  responsibility  as  between  the  Secretary  of  the 
Interior  and  the  commission,  for  on  April  30,  19 15,  a  letter 
from  the  President  provided  that 

all  work  of  the  Alaskan  Engineering  Commission  under  all 

^^Ibid.,  p.  S3. 

^''Executive  Order  of  April  10,  1915.     (See  Appendix  5). 

^^  See  Appendix  5. 


i8         ALASKAN  ENGINEERING  COMMISSION 

orders  made  by  me  and  the  carrying  out  of  all  contracts 
entered  into  l)y  my  direction  under  authority  of  said  act,  1>e 
performed  under  the  supervision  and  control  of  the  Depart- 
ment of  the  Interior,  as  directed  by  the  head  thereof,  in  all 
respects  and  to  all  intents  and  purposes  the  same  as  if  said 
work  had  been  placed  by  law  under  the  jurisdiction  and  con- 
trol of  the  Department  of  the  Interior. 

Initial  Construction  Period.  Following  the  above  author- 
ization and  directions  of  the  President,  the  commission  pre- 
pared itself  for  the  actual  work  of  construction.  William 
C.  Edes  was  made  Chairman,  with  headquarters  at  Seward 
where  it  was  decided  to  locate  the  administrative  offices; 
Frederick  Mears  was  placed  in  charge  of  construction  of  new 
line,  to  begin  at  a  point  where  Ship  Creek  enters  Knik  Arm 
of  Cook  Inlet,  a  locality  later  known  as  Anchorage;  and  the 
third  commissioner,  Mr.  Riggs,  took  charge  of  the  final  de- 
tailed location  of  the  line,  since  the  general  surveys  made  in 
1914  had  been  aimed  merely  to  supply  a  basis  for  the  Presi- 
dent's decision  as  to  the  best  general  route  and  were  not  suit- 
able for  actual  construction. 

The  railroad  was  to  be  constructed  in  a  wilderness,  so  that 
it  was  necessary  to  develop  and  carry  various  agencies  along 
with  the  actual  road  construction.  It  was  found  essential  to 
the  project  to  build  ocean  docks,  towns  and  camps,  machine 
shops,  supply  terminals,  etc.  Railroad  rolling  stock,  construc- 
tion equipment,  and  supplies  of  all  sorts  had  to  be  transported 
1500  to  2500  miles  from  Seattle,  which  was  the  nearest  Pacific 
coast  port. 

Acquisition  of  Supplies  and  Equipment.  Under  the  terms 
of  the  act  of  March  12,  19 14,  and  President  Wilson's  letter 
of  authorization  of  April  10,  191 5,  the  commission  was  to 
derive  its  supplies  and  equipment  for  its  undertaking  in  three 
ways;  by  transfer  from  the  Panama  Canal,  by  utilization  of 
such  materials  as  were  available  along  the  right  of  way  and 
in  the  reservation  lands,  and  by  ordinary  purchase. 

In  order  to  make  arrangements  for  assembling  and  shipping 
available   equipment   from   Panama,   a   representative  of  the 


HISTORY  19 

commission  was  sent  to  the  Isthmus  in  March,  19 15.  By  mid- 
summer such  material  and  machinery  had  been  overhauled 
and  shipped  in  chartered  vessels  from  the  Canal  Zone  to 
Alaska.  The  commission  was  not  charged  for  this  equip- 
ment, but  it  bore  the  expense  of  repairing  and  freight,  which 
arrangement  resulted  in  a  saving  of  from  50  tO'  60  per  cent 
over  the  cost  of  new  equipment. 

To  provide  for  purchase  of  supplies,  in  accordance  with 
the  law,  a  purchasing  office  was  established  at  Seattle.  In 
191 7  branch  offices  were  established  at  Portland,  Oregon,  and 
San  Francisco  aiming  at  an  extension  of  the  sphere  of  com- 
petition for  supplying  the  requisite  supplies  and  a  consequent 
reduction  in  costs. 

In  addition  to  purchasing  the  equipment  and  materials,  the 
purchasing  office  arranged  for  transportation  by  rail  and 
water  except  for  a  single  year  when  a  separate  agency  was 
created  for  this  and  other  purposes,  described  in  the  next 
paragraph.  Inspection  of  materials  purchased  was  done 
under  contract  with  the  commission  by  a  commercial  con- 
cern. The  cost  of  inspection  was  .91  of  one  per  cent  of  the 
invoice  price  of  the  materials  purchased  in  19 16  and  1.12  per 
cent  in  '917. 

To  lower  the  cost  of  inspection,  to  meet  the  difficulties  of 
transportation,  and  also  to  relieve  the  purchasing  office,  the 
office  of  Engineering  Representative  was  established  in  Seattle 
in  19 1 7  to  attend  to  the  following  matters: 

To  examine  equipment  and  material  to  be  applied  on 

the  railroad. 

To  attend  to  various  technical  matters,    such   as   the 

preparation  of  standard  specifications   for  track  fittings, 

frogs,  switches,  etc. 

To    employ    technical    men    and    labor    for    Alaskan 

ser\^ice. 

To  charter  vessels  and  barges   for  transportation  of 

supplies  to  Alaska  and  to  supervise   the  transportation 

itself. 


20        ALASKAN  ENGINEERING  COMMISSION 

,With  the  diminution  of  activity  in  191 8,  the  office  of 
Engineering  Representative  was  abolished  on  June  i,  and  all 
its  activities  transferred  back  to  the  General  Purchasing 
Agent.  The  work  accomplished  by  this  office  for  the  brief 
period  of  its  existence  is  described  in  the  section  on  trans- 
portation. There  was  no  other  change  made  in  the  pur- 
chasing office  thereafter,  even  in  the  reorganization  of 
November,  191 9. 

From  the  third  source  of  supply,  material  along  the  right 
of  way  and  in  reservation  lands,  coal,  and  wood  were  ob- 
tained. Various  timber  reservations  were  made  in  order  to 
retain  control  of  timber  suitable  for  railroad  construction. 
The  field  service  of  the  General  Land  Office  worked  in  co- 
operation with  the  commission  in  handling  this  reservation 
timber.  At  first,  wood  was  obtained  only  for  piling  and 
culvert  timbers  and  for  ties,  while  lumber  for  general  build- 
ing purposes  and  for  bridge  construction  was  imported  from 
Puget  Sound.  Gradually,  however,  as  saw  mills  were  erected 
along  the  route,  lumber  for  snowsheds  and  other  structures 
became  available.  Coal  was  first  obtained  for  the  commis- 
sion's use  in  the  summer  of  19 16,  when  a  small  mine, 
located  at  a  point  one-half  mile  from  the  Matanuska  branch 
of  the  railroad  at  Moose  Creek,  was  opened.  A  contract 
was  entered  into  for  2000  tons  of  coal  at  $6  per  ton.  Before 
this  mine  was  opened,  the  commission  was  paying  about  $16 
per  ton  for  coal  from  Puget  Sound. 

Sufficient  coal  was  produced  at  this  time  to  meet  the  needs 
of  the  commission  and  the  town  of  Anchorage  for  the  summer 
and  fall  of  that  year.  In  April  1917  a  mine  operator  who 
had  been  granted  a  coal  leasing  unit  at  Eska  Creek  ^^  ran  into 
serious  faults  in  the  mine  and  the  production  became  less 
than  thirty  tons  per  day.  The  annual  requirement  of  the 
commission  was  then  al)out  40,000  tons  and,  since  neither 
the  operator  nor  his  associates  had  sufficient  funds  to  develop 
the  mine  with  the  obstacles  being  encountered,  the  commis- 

^^  Under  the  Alaskan  Coal  Land  Law  (33  Stat.  L.,  525). 


HISTORY  21 

sion  paid  $15,650  for  the  improvements  that  had  been  made 
and  began  operation  of  the  mine  on  June  18,  19 17.  A  total 
of  18,198  tons  were  produced  during  the  year,  6000  tons  of 
which  were  mined  prior  to  June  18  under  private  operation. 

Transportation  of  Supplies  and  Equipment.  Because  of 
the  long  haul  involved,  the  transportation  to  Alaska  of  sup- 
plies and  equipment,  most  of  which  Avas  purchased  in  the 
states,  became  an  important  problem  even  at  the  beginning 
of  the  construction  project,  but  the  demoralization  of  the 
world's  shipping  facilities  which  followed  the  outbreak  of 
the  ^^'orld  War  caused  special  difficulties.  The  importance 
of  this  factor  in  the  cost  of  construction  is  shown  by  the  fact 
that  of  all  expenditures  made  by  the  commission  up  to  April 
I,  1920,  one-eighth  was  for  transportation  costs  from  Seattle 
to  Alaska. 

As  already  indicated,  all  matters  relating  to  transportation 
were  handled  by  the  Seattle  Purchasing  Office  except  for  the 
brief  period  when  the  office  of  ''Engineering  Representative" 
was  in  existence.  For  handling  all  freight  and  passengers 
arriving  by  steamers,  a  receiving  and  forwarding  department 
was  established  in  the  Anchorage  Division.  In  anticipation 
of  a  congestion  of  freight  on  the  ordinary  commercial  ships 
which  would  follow  the  demand  for  tonnage  by  the  railroad 
construction  project,  arrangements  were  made  with  the  War 
Department  in  19 16  to  repair  and  operate  the  transport 
Crook  from  Seattle  to  Anchorage  at  the  expense  of  the 
commission.  Since  commercial  rates  for  water  carriage  were 
advancing  rapidly  owing  to  war  demands  for  tonnage,  the 
saving  which  resulted  from  the  utilization  of  this  army  trans- 
port was  reported  "more  than  sufficient  to  meet  the  cost  of 
operating  the  vessel,  plus  the  cost  of  extensive  repairs  which 
it  was  necessary  for  the  Commission  to  incur  to  place  the 
Crook  in  commission."  The  transportation  facilities  thus 
made  available  were  supplemented  by  a  seagoing  tug  and 
barge,  operated  between  Seattle  and  Anchorage  via  the  inside 
passage;  a  collier  placed  at  the  disposal  of  the  commission  by 


22         ALASKAN  ENGINEERING  COMMISSION 

the  Navy  Department  to  carry  a  cargo  of  rails,  and  several 
chartered  commercial  vessels. 

It  was  found  that  dependence  upon  commercial  steamers 
placed  the  commission  practically  at  the  mercy  of  the  steam- 
ship companies  in  matters  of  delivery  and  cost.  Accordingly, 
in  iQij,  the  office  of  Engineering  Representative  at  Seattle, 
to  which  was  assigned  the  duties  previously  under  the  juris- 
diction of  the  Purchasing  Office  of  chartering  of  vessels  and 
barges  and  the  general  supervision  of  transportation  itself, 
attempted  both  to  lower  costs  and  to  expedite  delivery. 
Arrangements  were  made  for  specially  chartered  barges  at 
less  than  commercial  rates,  and  a  special  tariff  agreement 
was  made  with  the  White  Pass  and  Yukon  Railroad  providing 
for  transportation  at  60  per  cent  of  the  regular  rates.  Con- 
sequently, out  of  a  total  of  70,000  tons  of  supplies  shipped 
during  the  year,  only  about  11,000  tons  went  by  commercial 
steamers  at  commercial  rates. 

Distribution  of  Supplies  and  Equipment.  The  method  in 
which  supplies  and  equipment  were  distributed  to  the  zones 
of  operation  under  the  peculiar  conditions  obtaining  in  Alaska 
merits  some  attention. 

Before  leaving  Seattle  in  April,  19 15,  the  commission 
spent  about  $40,000  in  the  purchase  and  shipment  of  equip- 
ment, material,  and  supplies  essential  for  initiating  construc- 
tion. To  provide  for  transferring  this  cargo  to  the  shore 
at  Anchorage  a  1000-ton  barge  and  three  lighters  were  pur- 
chased at  Seattle  for  delivery  at  Anchorage  as  well  as  material 
for  a  200-ton  barge  which  was  to  be  put  together  there.  No 
wharf  could  be  constructed  at  which  deep  draft  steamers  could 
dock  until  the  channel  was  dredged.     To  meet  this  difficulty  *° 

A  very  serviceable  dock  was  constructed  on  the  north  bank 
of  Ship  Creek  near  the  mouth.  In  front  of  the  dock  was  con- 
structed a  "grid-iron,"  over  which  the  barges  were  floated  at 

^  Alaskan  Engineering  Commission,  Report  for  the  period  from 
March  12,  1914,  to  December  31,  1915,  p.  185  (Printed  as  H.  Doc. 
610,  64  cong.  I  sess.). 


HISTORY  23 

high  tide  and  on  which  they  safely  rested  at  low  tide,  thus 
avoiding  any  difficulty  in  unloading.  A  15-ton  derrick, 
operated  by  hoisting  engine,  was  equipped  for  unloading  the 
barges. 

Several  towboats  which  had  been  employed  in  the  engi- 
neering sun'ey  of  the  previous  year  were  also  utilized  as  well 
as  some  gasoline  boats  belonging  to  private  individuals  in 
order  that  the  heavy  demurrage  charges  of  the  ocean  steamers 
might  be  avoided.  After  the  first  shipload  of  supplies  and 
material  had  been  unloaded  a  large  warehouse  was  con- 
structed at  the  dock  for  storage  of  commissary  supplies  and 
a  track  was  laid  from  the  dock  to  a  storage  yard,  a  half 
mile  distant,  to  which  point  lumber  and  construction  material 
were  taken.  Some  flat  cars  were  taken  from  the  stock  of  the 
Alaska  Northern  Railroad  at  Seward  and  brought  by  steamer 
to  Anchorage  for  the  handling  of  construction  material. 

As  soon  as  work  began  on  the  line  from  Anchorage,  supply 
camps  were  established  at  various  points  along  the  line,  sup- 
plied by  barges  working  on  Knik  Arm  and  by  freight  teams. 
Bridges  were  not  erected  till  they  were  reached  by  the  newly 
constructed  railroad  track  to  avoid  the  expense  of  hauling 
the  necessary  material  by  teams,  but  the  bridge  timbers  were 
hauled  by  construction  trains  to  the  various  sites.  In  19 16 
large  quantities  of  material,  equipment,  and  supplies  were 
distributed  ahead,  over  the  uncompleted  Avork.  Transporta- 
tion facilities  provided  by  the  ice  of  rivers  and  snow  roads 
over  frozen  swamp  lands  made  this  distribution  comparatively 
easy  and  cheap  in  some  regions.  In  others  distribution  was  a 
greater  problem  and  required  special  lalxDr  and  cost.  For 
example,  for  use  on  the  Susitna  River  above  Croto,  a  special 
type  of  boat  called  a  'Viver  tunnel  boat"  was  designed  to 
meet  the  difficulties  due  to  many  gravel  bars  and  low  water. 

Construction.  In  the  construction  of  the  railroad,  there 
were  two  general  classes  of  work :  the  first,  including  the 
clearing  of  right  of  way,  grubbing,  grading,  excavation, 
etc.,  comprising  a  kind  of  labor  that  could  be  standardized 


24        ALASKAN  ENGINEERING  COMMISSION 

and  for  which  unit  prices  could  be  established;  and  the 
second,  covering  the  building  of  bridges,  laying  of  tracks, 
building  of  snowsheds,  etc.,  where  no  such  standardization 
was  possible.  The  greatest  portion  of  the  first  type  of  work 
was  let  out  to  "station  men"  under  a  system  described  by  the 
commission  in  the  following  language: 

A  number  of  men  associate  themselves  together  as  partners, 
taking  short  pieces  of  work  at  a  certain  price  per  cubic  yard 
for  grading,  or  per  acre  for  clearing  or  grubbing.  Iiach  man 
signs  the  contract  for  doing  the  work  and  becomes  equally 
interested  in  it  as  a  copartner  or  small  contractor.  Each  man 
receives  his  separate  check  for  doing  his  portion  of  the  work. 
The  amount  received  depending  upon  the  amount  of  work 
done,  the  men  are  spurred  to  exert  their  best  efforts.  Scarcely 
any  capital  is  necessary  to  take  a  station  contract,  as  the  com- 
mission furnishes  the  necessary  equipment  at  a  moderate 
rental. 

The  advantage  of  this  method  as  compared  with  the  letting 
of  the  work  to  large  contractors  was  two-fold.  First,  there 
was  the  saving  in  the  profit  of  the  large  contractor,  who  would 
have  taken,  as  it  turned  out  later,  a  percentage  on  the  rapidly 
increasing  costs  of  labor  and  material  during  the  period  of 
inflation ;  second,  there  was  an  incentive  to  the  men  to  exert 
their  best  efforts,  since  wages  were  in  proportion  to  per- 
formances. 

The  contract  with  the  station  men  stipulated  that  the  work 
undertaken  be  executed  "in  the  most  substantial  and  work- 
manlike manner  .  .  .  under  and  in  strict  accordance  with 
the  adopted  standard  specifications  and  directions  of  the  en- 
gineer for  the  Alaskan  Engineering  Commission."  It  was 
also  provided  that  additional  partners  might  be  taken  in  if 
it  was  to  the  interest  of  the  project  to  do  so.  Whenever  the 
commission  deemed  it  necessar}^,  station  men  were  authorized 
to  hire  laborers  at  a  rate  of  pay  "in  accordance  with  the 
standard  schedule  of  wages  adopted  by  the  commission."  A 
three-fold  classification  of  the  material  removed  in  the  grad- 


HISTORY  25 

ing — solid  rock,  loose  rock,  and  common  excavation — was 
made,  and  a  unit  price  was  established  for  each  class.  Stan- 
dards and  unit  prices  were  established  also  for  clearing  of 
the  right  of  way.  Clearing  Right  of  way  began  at 
Anchorage  in  May,  191 5,  and  by  the  end  of  the  year  track 
had  been  laid  for  13^  miles,  grading  completed  for  thirty-five 
miles,  and  the  right  of  way  cleared  for  forty  miles,  712  acres. 
Certain  projects  ancillary  to  so  large  a  construction  enter- 
prise in  pioneer  country  were  of  necessity  undertaken,  such 
as  the  construction  of  a  freight  yard  at  Anchorage,  the  erec- 
tion of  a  temporary  telephone  line,  establishment  of  adequate 
lighterage  facilities,  a  self-supporting  commissary  for  em- 
ployees, adequate  housing  facilities,  medical  service,  etc. 

In  1 91 6  the  commission  began  to  feel  some  of  the  indirect 
effects  of  the  European  War,  in  advancing  ocean  freight 
rates,  scarcity  of  shipping  tonnage,  rising  prices  for  materials 
and  labor,  and  labor  disturbances.  In  spite  of  these  obstacles, 
considerable  progress  was  reported.  Sixty  miles  of  main 
line  track  were  laid,  one  hundred  were  graded,  and  the  right 
of  way  was  cleared  for  230  miles.  The  work  in  the  Anchor- 
age Division  was  subdivided  into  three  construction  districts, 
the  Matanuska.  Turnagain  Arm,  and  Talkeetna  districts, 
each  under  a  district  engineer.  A  terminal  district  was  or- 
ganized in  the  Anchorage  Division  to  attend  to  the  operation  "^^ 
and  maintenance  of  newly  completed  line  out  from  Anchorage 
and  the  construction  of  terminal   facilities.     Work  was  also 

begun  in  June  at  the  northerly  end  of  the  line  from  Fairbanks 
south.^2' 

In  1 91 7  the  Seward  Division  was  created,  to  carry  out  the 
work  of  rehabilitation  and  operation  of  the  Alaska  Northern 

*^  Details  as  to  operation  of  newly  constructed  road  and  the  re- 
]ial>ililation  and  operation  of  the  Tanana  Valley  and  Alaska  North- 
ern   Railroad   are   given    in   Chapter   II. 

*2  Although  the  initiation  of  work  at  this  date  necessitated  con- 
siderable additional  cost  because  supplies  had  to  be  brought  over  the 
long  route  from  Seattle  to  St.  Michaels,  it  was  deemed  advisable  to 
begin  then  to  relieve  the  fuel  situation  in  Fairbanks.  Development 
of  this  town  and  the  region  surrounding  it  was  being  restricted  by 
scarcity  of   fuel. 


26        ALASKAN  ENGINEERING  COMMISSION 

Railroad  as  well  as  the  construction  of  8J/2  miles  of  new  track. 
By  the  end  of  the  year  174.88  miles  of  standard-gauge  track 
and  26.5  miles  of  sidings,  spurs,  and  yard  tracks  had  been 
laid.  In  addition  there  were  76.8  miles  of  the  line  graded 
and  70.8  miles  cleared  but  not  graded. 

Purchase  of  Alaska  Northern  Railroad.  A  problem  some- 
what distinct  from  the  general  construction  program  was  the 
purchase,  rehabilitation,  and  operation  of  the  Alaska  North- 
ern railroad.  The  act  of  March  12,  1914,  required  that 
the  government  railroad  terminate  on  an  ice- free  harbor  on  the 
south  coast  of  Alaska.  It  was  necessary,  therefore,  to  start 
at  the  town  of  Seward,  located  at  the  head  of  Resurrection 
Bay.  Since  the  Alaska  Northern  in  general  followed  the 
most  feasible  route  toward  the  interior,  only  two  courses  were 
open;  the  purchase  of  this  railroad  or  the  construction  of  a 
new  line  paralleling  the  old.  A  careful  field  physical  evalua- 
tion by  the  commission,  described  above,  verified  by  the  ex- 
perts of  the  Interstate  Commerce  Commission,  demonstrated 
that  the  price  requested  by  the  private  owners  of  the  Alaska 
Northern  was  not  in  excess  of  its  value.  It  was,  therefore, 
considered  the  wiser  policy  to  purchase.  Once  having  made 
this  decision,  the  commission  deemed  it  better  to  negotiate 
with  the  owners  and  agree  on  a  reasonable  price  than  to 
enter  into  condemnation  proceedings. 

The  investigation  of  the  commission  demonstrated  that  the 
Alaska  Northern  Railway  had  cost  the  original  owners  and 
builders  $5,250,000.  The  Interstate  Commerce  Commission 
reported  a  total  investment  in  road  and  equipment  of 
$3,616,800.81  to  June  30,  1912.  The  purchase  price  of 
$1,157,339.49  was  slighly  below  the  actual  physical  value  of 
the  property  as  estimated  by  the  engineers  of  the  commission 
and  as  certified  to  by  the  valuation  experts  of  the  Interstate 
Commerce  Commission.  The  commission  acquired  not  only 
the  terminals  and  physical  properties  of  the  railroad,  but  also — 
a  verv  considerable  value  in  the  work  which  had  been  done 
by  tlie  former  Alaska  Northern  Railway  Co.  at  various  points 


HISTORY  27 

along  Turnagain  Arm  and  by  having  the  benefit  of  the  studies, 
maps,  and  profiles  which  they  had  prepared  as  a  result  of 
their  field  surveys  from  Seward  to  Fairbanks  over  the  entire 
present  adopted  route  of  the  Government  railroad  and  of  the 
Matanuska  Branch  line.*^ 

An  inicial  installment  of  $500,000  and  interest  was  paid  on 
August  25,  1915,  when  litigation  over  the  title  had  ceased, 
and  the  final  payment  of  $650,000  was  made  on  June  30, 
1916;  on  which  date  the  government  came  into  full  posses- 
sion. 

Dez'elopmcnt  of  Traific.  Not  only  in  anticipation  of  the 
final  completion  of  the  railroad  but  also  to  provide  a  pro- 
gressively increasing  revenue  for  the  various  sections  of  the 
road  as  they  were  successively  put  into  operation  during  the 
period  of  construction,  it  was  deemed  necessary  to  adopt 
measures  which  would  create  and  foster  trafific.  This  was 
attempted  at  first  through  three  general  lines  of  activity :  first, 
through  establishment  of  towns  at  intervals  along  the  line;'*^ 
second,  through  dissemination  to  the  general  public  and  espec- 
ially to  prospective  settlers  of  information  on  the  natural  re- 
sources and  land  and  mineral  laws  of  the  country  tributary 
to  the  railroad  and  the  progress  of  railroad  construction,  and 
third,  through  effecting  cooperation  between  the  merchants, 
miners,  and  farmers  of  the  territory.  To  attend  to  these 
matters  the  Land  and  Industrial  Department  of  the  commis- 
sion was  created  in  April,  1916.'*^ 

On  April  12,  19 17,  the  manager  of  this  department  was 
designated  "the  authorized  representative  of  the  lessor    [the 

*3  House  Committee  on  Territories,  Hearings  on  H.  R.  7417,  1919, 

P-  193- 

■**  These  towns  were  established  not  only  to  encourage  traffic  but 
also  to  provide  proper  sanitary  and  moral  protection  for  the  em- 
ployees during  the  period  of  construction.  This  activity  may  be 
considered  both  an  institutional  and  a  functional  one. 

*5  In  the  reorganization  of  Nov.,  1919,  jurisdiction  over  the  country 
tributary  to  the  Northern  Division  was  placed  directly  under  the 
Engineer  in  Charge  of  that  division,  the  activities  of  the  Land 
and  Industrial  Department  being  thereafter  confined  to  the  Southern 
Division. 


28         ALASKAN  ENGINEERING  COMMISSION 

Federal  Government]  in  general  administration  of  the  coal 
land  leases,"  to  supervise  mining  operations  and  perform  other 
functions  imposed  by  law,  regulations,  or  leases,  upon  the 
local  representative  of  the  Department  of  Interior  in  Alaska. 
The  commission  was  interested  primarily  in  the  administra- 
tion of  these  coal  land  leases  only  in  so  far  as  a  promise  of 
coal  tonnage  for  the  railroad  was  involved.  Other  matters 
connected  with  the  operation  of  the  mines  were  assigned  to 
other  services.  Thus  the  Bureau  of  Mines  was  directed  to 
cooperate  with  the  Land  and  Industrial  Department  of  the 
Alaskan  Engineering  Commission  in  the  working  of  the  mines 
so  that  the  mining  operations  would  be  conducted  with  due 
regard  to  the  preservation  of  property,  prevention  of  undue 
waste,  and  safety  and  welfare  of  miners,  while  the  General 
Land  Office  was  to  have  jurisdiction  over  surveys,  the 
notation,  assignment,  cancellation,  or  modification  of  leases, 
and  all  matters  pertaining  to  the  status  of  lands.  All  rents 
and  royalties  were  payable  to  the  local  land  office. 

As  a  consequence  of  the  above  major  lines  of  activity  of 
the  Land  and  Industrial  Department,  several  secondary  activ- 
ities either  developed  automatically  or  were  superimposed  upon 
it  by  the  commission.  First,  to  make  possible  the  dissemina- 
tion of  information  on  the  general  development  and  resources 
of  the  territory,  the  department  gathered  the  available  data 
through  both  primary  and  secondary  investigations,  the  net 
product  of  v^hich  was  a  section  in  the  annual  report  of  the 
commission  dealing  with  the  agricultural  and  economic  prog- 
ress of  the  country  tapped  by  the  railroad.  Second,  in 
consequence  of  its  familiarity  with  economic  conditions  in 
this  territory,  the  Land  and  Industrial  Department  was  enabled 
to  make  recommendation  to  the  commission  as  to  the  desir- 
ability of  proposed  legislation  and  as  to  necessary  federal 
legislation  or  federal  assistance  in  various  directions. 
Third,  since  the  establishment  of  townsites  necessarily  in- 
cluded "inter  alia"  control  of  matters  relating  to  withdrawal 
of  lands  for  railroad  and  public  purposes  and  the  leasing  of 


HISTORY  29 

lands  under  commission  control  for  industrial  and  other  pur- 
poses, the  transition  was  easy  to  a  general  assignment  to  the 
department  by  the  commission  of  all  matters  relating  to  land 
and  real  estate  owned  or  controlled  by  the  commission."*^ 

It  would  be  valueless  to  describe  in  detail  all  these  phases 
of  the  commission's  work,  most  of  which  are  self-explanatory. 
Attention  is  only  directed,  therefore,  to  the  appraisal  and  sale 
of  lots  and  town  management,  matters  which  require  some 
degree  of  clarification. 

By  the  Alaskan  Railroad  Act  of  March  12,  1914,  the  Pres- 
ident was  authorized  to  withdraw,  locate,  and  dispose  of, 
under  such  rules  and  regulations  as  he  might  prescribe,  such 
area  or  areas  of  the  public  domain  along  the  line  or  lines  of 
the  proposed  railroad  or  railroads  for  townsite  purposes  as 
he  might  from  time  to  time  designate. 

In  accordance  with  this  provision  the  President  at  different 
times  withdrew  tracts  of  public  domain  which,  because  of 
natural  advantages  of  location,  appeared  to  be  proper  town 
sites.  One  June  19,  191 5,  the  President  issued  an  Executive 
Order  containing  regulations  for  the  reservation  of  lands, 
the  survey  of  the  townsites,  and  the  sale  of  lots  providing, 
in  so  far  as  the  work  of  the  commission  was  involved,  as 
follows : — 

( 1 )  The  Alaskan  Engineering  Commission  could  take 
the  initiative  in  reserving  land  for  townsite  purposes  by 
making  recommendation  to  the  Secretary  of  the  Interior, 
who  was  then  obligated  to  transmit,  with  his  own  con- 
currence or  objections,  the  commission's  recommenda- 
tion to  the  President,  and  the  President  could  thereupon, 
if  he  approved,  make  the  reservation  by  Executive  Order. 

(2)  The  commission  was  empowered  to  select  a  por- 
tion of  the  reservation  for  railroad  purposes  to  be  set 
aside  by  the  Secretary  of  the  Interior.  The  rest  of  the 
land  was  to  be  surveyed   for  lots,  parks,  schools,  high- 

^'^  Including    creation    of    timber    reservations    and    elimination    of 
lands  from  such  reservations, 


30         ALASKAN  ENGINEERING  COMMISSION 

ways,  clocks  and  wharves,  etc.,  the  plats  of  surveys  pre- 
pared by  the  General  Land  Office  to  be  approved  by  the 
Chairman  of  the  Commission  and  the  Commissioner  of 
the  General  Land  Office. 
The  regulations  provided   further   for  the  appointment  of 
a  superintendent  to  direct  the  auction  of  unreserved  lots.     He 
was  authorized  "to  make  all  appraisements  of  lots  and  at  any 
time  to  reappraise  any  lot  which  in  his  judgment  is  not  ap- 
praised at  the  proper  amount,  or  to  fix  a  minimum  price  for 
any  lot  below  which  it  may  not  be  sold,  and  he  may  reject 
any  and  all  bids  for  any  lot  and  at  any  time  suspend,  adjourn, 
or  postpone  the  sale  of  any  lot  or  lots  to  such  time  and  place 
as  he  may  deem  proper."  "^^ 

The  manager  of  the  commission's  Land  and  Industrial  De- 
partment was  subsequently  named  the  Superintendent.  The 
regulations  prescribed  that  one-third  of  the  purchase  price  of 
any  lot  was  to  be  paid  at  the  time  of  sale  and  the  balance  in 
annual  installments  extending  over  a  period  of  five  years, 
with  no  taxes  or  interest  on  deferred  payments;  all  payments 
to  be  made  to  the  General  Land  Office."*^  There  were  certain 
restrictions  placed  on  the  lots,  prohibiting  their  use  for  the 
sale  of  liquor,  ganibling,  or  immoral  purposes.  Penalty  for 
non-compliance  with  these  restrictions  was  the  forfeiture  of 
the  lot. 

In  order  to  exercise  proper  control  over  the  towns  in  such 
matters  as  sale  of  liquor,  sanitation,  and  fire  protection,  so 
as  to  prevent  interference  with  the  expeditious  execution  of 
the  railroad  project,  the  General  Land  Office  decided  to  sell 
the  lots  in  a  way  which  would  keep  the  title  to  the  property 
in  the  United  States  Government  until  the  necessity  was 
over.  Payments  were,  therefore,  extended  over  a  period 
of   five   years.     Consequently,    inasmuch   as   the   title   to   the 

■'"  House  Committee  on  Territories,  Hearings,  supra,  p.  88. 

^*  On  Oct.  25,  1918,  the  President  promulgated  Executive  Order 
No.  2982  providing  for  an  extension  of  one  year  for  deferred  pay- 
ments due  August,  1918,  and  thereafter,  in  order  to  meet  unusual 
conditions  due  to  the   war. 


HISTORY  31 

land  in  some  of  the  townsites  was  thus  vested  in  the  United 
States  Goverment  and  since  the  power  to  tax  property,  title 
to  which  is  vested  in  the  Government,  does  not  reside  in  a 
municipal  organization,  it  was  not  practicable  to  turn  the  man- 
agement of  the  townsites  over  to  the  citizens  of  the  respective 
communities.  Accordingly  when  the  first  railroad  townsite 
was  established  at  Anchorage  in  191 5,  a  townsite  manager  was 
appointed  by  the  commission,  and  under  authority  of  the  Pres- 
ident's regulations  of  June  19,  191 5,  land  was  cleared,  streets 
improved,  and  arrangements  made  for  water  supply  and  fire 
protection,  the  cost  of  which  was  to  be  assessed  by  special  levy 
on  the  property  in  the  town.  As  it  developed  later  water  and 
electricity  were  sold  at  reasonable  rates,  and  a  certain  amount 
of  the  cost  of  installation  of  the  water  plant  was  assessed 
against  the  property  in  the  town.  The  electricity  was  sup- 
plied by  a  plant  located  in  the  railroad  yards.  The  various 
street  and  sidewalk  improvements  made  in  the  town  were 
assessed  against  the  property;  also  the  sewers.  An  efficient 
fire  protection  was  provided,  the  maintenance  of  which  was 
charged  against  the  property  owners. '*'''  In  order  to  retain 
married  employees,  facilities  for  educating  their  children  had 
to  be  provided.  On  December  28,  19 16,  the  Secretary  of  the 
Interior  issued  an  order,  upon  recommendation  of  the  Alaskan 
Engineering  Commission,  authorizing  the  commission  to  ex- 
pend "from  appropriations  made  for  the  construction  and 
operation  of  railroads  in  Alaska,  such  sums  as  may  be  neces- 
sary in  the  judgment  of  the  commission  for  the  maintenance 
of  school  facilities  for  children  of  its  officers  and  employees, 
in  unincorporated  towns  on  the  line  of  the  Government  rail- 
road, until  sufficient  funds  are  available  for  school  purposes 
in  those  towns  through  contributions  from  Territorial  funds 
or  other  sources."  ^" 

In  order  to  meet  inquiries  and  to  be  able  to  disseminate 

*^  House  Committee  on  Territories,  Hearings,  supra,  p.  174. 

^'^  Ibid.,  p.  89.  By  act  of  March  3,  1917,  and  April  23,  1917,  Con- 
gress legislated  for  Alaskan  schools,  providing  for  incorporation  of 
school  districts. 


Z2        ALASKAN  ENGINEERING  COMMISSION 

general  information,  the  Land  and  Industrial  Department 
gathered  descriptive  and  statistical  data  on  the  population, 
agricultural  output,  the  mineral  development,  and  economic 
progress  of  the  territory  tributary  to  the  railroad.  Weather 
stations  were  established  in  cooperation  with  the  Weather 
Bureau  to  obtain  meteorological  records.  This  information, 
together  with  news  of  construction  progress,  was  distributed' 
in  the  form  of  press  bulletins  to  all  newspapers  in  the  Alaskan 
and  Yukon  Territory  and  to  the  Associated  Press  in  Seattle. 
On  November  14,  1916,  publication  of  the  Alaskan  Rail- 
road Record  was  begun,  to  give  to  employees  and  the  general 
public  current  information  as  to  the  progress  and  operation 
of  the  railroad  and  other  items  of  interest.  In  19 19  the 
subscription  list  had  1125  names,  including  935  official,  160 
free  public,  and  thirty  paid.  The  editor  was  the  manager  of 
the  Land  and  Industrial  Department,  and  half  of  his  time 
($1200)  was  chargeable  to  the  editing  of  the  paper.  The 
total  cost  of  the  paper  per  year,  including  editing,  printing, 
and  stenographic  work,  was  $2950.  Publication  was  discon- 
tinued by  order  of  the  Secretary  of  the  Interior  on  July  i, 
1920.  The  Land  and  Industrial  Department  also  prepared  a 
general  summary  of  the  development  of  the  territory  for  the 
annual  report  of  the  commission. 

Period  of  War-Tiine  Retardation  of  Construction.  Shortly 
after  the  entrance  of  the  United  States  into  the  World  War 
many  obstacles  naturally  presented  themselves.  First  of  all 
there  were  two  resignations  from  the  commission  itself.  Col. 
Mears  leaving  on  Jan.  31,  19 18,  and  Mr.  Riggs  leaving  in 
I\Iay,  191S,  upon  his  appointment  to  the  governorship  of 
Alaska.  No  reorganization  of  the  commission  was  effected, 
however,  at  this  time  because  of  the  general  uncertainty  of 
war  conditions,  but  engineers-in-charge  were  placed  at  Nenana 
and  Anchorage,  respectively. 

A  second  difficulty  was  the  loss  of  a  large  portion  of  the 
working  force,  which  amounted  to  fifty  per  cent,  some  of  the 
men  leaving  for  military  service  and  some  emigrating  to  the 
states  to  profit   from  high  wages.     The  third  problem  was 


HISTORY  33 

the  constant  increase  in  the  general  price  level.  Freight 
charges,  for  example,  mounted  to  40  per  cent  above  the  19 17 
cost  although  arrangements  had  been  made  with  the  Shipping 
Board  to  handle  all  freight  consigned  to  the  commission  on 
commercial  steamers.^^ 

In  spite  of  all  these  difficulties  considerable  progress  was 
made.  By  the  end  of  1918  there  had  been  constructed  229.8 
miles  of  standard-gauge  railroad,  thirty  miles  of  sidings, 
spurs,  and  yard  tracks  and  9.5  miles  of  main  line  narrow-gauge 
tracks,  while  fifty-three  miles  of  line  had  been  graded  and 
thirty  miles  more  cleared. 

In  the  fall  of  19 17,  the  Tanana  Valley  Railroad  was  pur- 
chased for  $300,000,  an  average  of  $6818  per  mile.  The 
condition  of  this  road  at  the  time  of  purchase  has  been  de- 
scribed. It  was  a  narrow-gauge  line,  44.4  miles  in  length, 
including  5.13  miles  of  branch  line  from  Happy  Station,  y.-^ 
miles  from  Fairbanks  to  the  town  of  Chena,  which  at  certain 
stages  of  the  river  was  the  head  of  navigation  for  the  larger 
steamers.  The  main  line  extended  northeasterly  from  Happy 
Station  for  a  distance  of  31.91  miles  to  Chatanika,  thus  tap- 
ping the  several  small  towns  in  the  gold  mining  district. ^^ 
The  original  cost  to  the  owners  was  $867,000,  and  their  in- 
vestment had  originally  been  a  profitable  one;  but  as  against 
$115,902.77  in  1919,  the  net  earnings  in  1914  were  only 
$22,319.69,  and  three  years  later,  at  the  time  of  purchase,  the 
operating  revenue  was  barely  sufficient  to  meet  operating  ex- 
pense. This  decline  in  earnings  was  due  to  the  cessation  of 
gold  mining  in  the  district  following  the  high  costs  of  labor 
and  materials,  scarcity  of  fuel,  and  a  relatively  low  purchas- 
ing power  of  gold  during  the  war  period. 

There  were  three  objects  in  the  purchase  of  this  road.  First 
of  all,  without  this  purchase  it  would  have  been  imperative 

^^  The  transport  Crook  had  to  be  returned  to  the  War  Depart- 
ment which  was  in  need  of  all  available  tonnage. 

^2  The  branch  line  from  Happy  Station  to  Chena  has  since  been 
abandoned  and  the  rails  torn  up. 


34         ALASKAN  ENGINEERING  COMMISSION 

to  provide  a  right  of  way  into  Fairbanks  for  the  government 
Hne  by  arranging  a  joint  right  of  way  occupancy  over  a  dis- 
tance of  seven  miles  of  the  Tanana  Valley  Railroad.  By  this 
purchase,  it  was  only  necessary  to  convert  y.'x,  miles  of  the 
road  from  its  intersection  with  the  government  railroad  to 
Fairbanks  into  standard  gauge  by  laying  a  third  rail.  The 
remainder  of  the  road  could  be  operated  as  a  narrow-gauge 
line.  Secondly,  since  the  purchase  price  included  the  shops, 
station  buildings,  yards,  etc.,  at  Fairbanks,  adequate  terminal 
facilities  were  there  provided  until  such  a  time  as  a  signifi- 
cant growth  of  Fairbanks  as  a  distributing  center  material- 
ized; finally  it  was  thought  that  this  road  would  become  a 
valuable  feeder  to  the  main  line,  for  although  the  bonanzas 
had  undoubtedly  been  worked  out  and  a  fruitful  source  of 
tonnage  thus  eliminated,  there  were  great  areas  of  low  grade 
ground  remaining  that  would  yield  a  good  profit  under  con- 
ditions of  adequate  transportation  facilities  and  lower  fuel 
cost  due  to  the  possibility  of  utilization  of  the  products  of 
The  Nenana  coal  fields. 

Post-War  Period  of  Reorgam.7.ation.  With  the  end  of  the 
war  and  the  gradual  return  of  much  of  the  working  force, 
full  resumption  of  operations  would  have  been  possible  but 
for  lack  of  funds.  The  commission  reported  2200  men  on 
the  pay  roll  at  the  close  of  the  fiscal  year  1919,  and  it  was 
stated  that  the  force  could  not  be  increased  until  additional 
appropriations  were  forthcoming.  For  the  original  author- 
ization of  $35,000,000  provided  for  in  the  act  of  March  12, 
1914,  was  almost  exhausted  by  the  middle  of  1919  mainly 
because  the  work  had  been  done  on  a  raising  market  for 
labor  and  materials.  Congress  was  asked  for  an  additional 
authorization  of  $17,000,000,  which  sum  the  commission 
believed  would  be  required  to  complete  the  work  by  December 
31,   1922. 

The  House  Committee  on  Territories,  to  which  the  bill 
authorizing  the  appropriation  was  referred,  held  hearings  at 
which  a  careful  inquiry  was  made  into  the  work  that  had 


HISTORY  35 

been   done   and   into   the   requirements   of   the    future.     The 
committee  in  recommending  passage  of  the  bill  declared : 

That  the  construction  of  the  Alaska  Railroad  by  the  Alaskan 
Engineering  Commission  has  been  prosecuted  under  most  ad- 
verse conditions,  due  in  large  part  to  the  war,  and  the  work 
has  been  done  at  the  lowest  cost  consistent  with  the  permanent 
character  of  the  work  performed.  The  railroad  will  cost  on 
completion  approximately  31  per  cent,  more  than  the  amount 
originally  estimated  and  the  entire  project,  including  terminals, 
rolling  stock,  and  physical  property,  and  maintenance  and 
operation  charges  in  excess  of  revenue  during  the  entire  period 
of  construction  less  than  50  per  cent,  more  than  the  amount 
originally  authorized  to  be  expended.  Since  the  commence- 
ment of  the  construction  of  the  road,  wages  of  employees 
increased  59  per  cent. ;  the  prices  of  materials  and  supplies,  as 
much  as  161  per  cent.,  and  transportation  costs  147  per  cent. 
The  result  of  accomplishing  this  construction  at  an  increase 
of  no  more  than  50  per  cent,  under  such  circumstances  is  due 
in  large  part  to  the  system  of  station  contracts  by  which  the 
original  estimates  of  excavation  costs  were  very  closely 
approximated.  .   .   . 

That  in  order  to  complete  the  railroad  from  Seward  to 
Fairbanks  by  December  31,  1922,  the  sum  of  $17,000,000 
additional  to  the  $35,000,000  originally  authorized  will  be 
required  and  this  sum  should  be  appropriated  at  the  earliest 
possible  date  to  be  immediately  and  continuously  available 
until  expended.^^ 

The  bill  recommended  by  the  committee  became  a  law  on 
Octol^er  7,  1 919.  Under  authority  of  this  law  Congress 
appropriated  $6,000,000  on  Nov.  4,  19 19,  $7,000,000  on 
June  5,  1920,  and  the  balance  of  $4,000,000  on  March  4, 
1921. 

Meanwhile  Col.  Mears  was  placed  in  charge  of  the  entire 
work  as  Chairman  and  Chief  Engineer.^^ 

On  November  22,  1919,  by  order  of  the  Chairman,  a  re- 
organization   w^as    effected.     The    Seward    and     Anchorage 

^^66  cong.  I  sess.,  H.  Rep.  231. 

'*  Though  the  work  has  thus  been  for  several  years  under  a  single 
commissioner  the   name  "Commission"   has  been   retained. 


36        ALASKAN  ENGINEERING  COMMISSION 

Divisions  were  combined  into  the  Southern  Division,  while 
the  Fairbanks  Division  became  the  Northern  Division.  In 
addition  to  these  two  functional  divisions,  three  coordinate 
institutional  divisions  were  created, — the  Supply,  Purchasing, 
and  Accounting  divisions. 

One  of  the  important  results  of  this  reorganization  was 
the  consolidation  of  the  supply  services  of  the  various  di- 
visions under  the  direction  of  an  engineer  in  charge  of  the  Sup- 
ply Division  to  prevent  the  ordering  of  such  supplies  from 
Seattle  by  one  division  as  were  already  on  hand  at  other  divi- 
sions, to  discover  and  dispose  of  surplus  stock,  and  to  devise  a 
system  for  a  permanent  stores  department  suitable  for  the 
railroad  as  an  operating  system.  It  was  found  that  the  var- 
ious storekeepers  in  their  desire  to  anticipate  various  con- 
tingencies had  overstocked,  in  many  cases.  ,With  the  near 
completion  of  the  entire  line  the  inventory  could  well  be 
reduced  in  order  to  release  more  of  the  available  funds  for 
construction  and  operation. 

A  careful  investigation  was  also  made  into  the  transporta- 
tion situation  which  had  always  been  a  difficult  problem,  and 
after  investigation  of  several  alternatives  the  commission 
entered  into  an  agreement  with  the  Alaska  Steamship  Com- 
pany and  the  Pacific  Steamship  Company  for  the  calendar 
year  1920^^  providing  as  follows: 

( 1 )  The  steamship  companies  agreed  to  transport  all  com- 
mission freight  from  Seattle  to  Seward  or  Anchorage  at  $13 
per  ton  with  no  penalties  or  classifiation. 

(2)  Commission  employees  and  members  of  their  fami- 
lies were  to  be  transported  at  75  per  cent  of  the  regular 
rates. 

(3)  It  was  agreed  that  there  was  to  be  no  increase  in  rates 
except  as  a  result  of  some  extraordinary  change  in  operating 
expense. 

For  transportation  to  Nenana,  an  agreement  was  reached 

°^  The  arrangement   proved  to  be   satisfactory  and  was   renewed 
for  the  year  1921. 


HISTORY  37 

with  the  White  Pass  and  Yukon  Railroad,  providing  special 
rates  on  rail  and  rolling  stock  and  regular  rates  on  other 
commodities.  An  arrangement  was  made  with  the  Coastwise 
Steamship  and  Barge  Company  to  transport  150  flat  cars 
and  four  locomotives  from  the  Isthmus  to  Anchorage  at  $21 
per  ton  without  penalties. 

With  reorganization  effected  and  ample  funds  provided  by- 
Congress,  good  progress  was  made  in  construction  and 
operation  during  1920.  By  the  end  of  the  year  456  miles  of 
track  had  been  laid,  of  which  275  miles  was  one  continuous 
stretch  of  main  line,  on  which  a  regular  schedule  of  pas- 
senger and  freight  trains  was  in  operation  twice  a  week  in 
both  directions.  A  schedule  of  three  trains  a  week  w^as  also 
in  operation  on  the  branch  line  to  the  coal  fields,  while  in  the 
northern  division  a  schedule  was  maintained  of  twice  a  week 
from  Fairbanks  to  the  River  and  from  Xenana  to  Healy. 
There  remained  a  gap  of  but  eighty-three  miles  betw^een  the 
ends  of  steel,  on  which  section  grading  had  been  from  60 
to  80  per  cent  completed  for  thirty-three  miles  and  the  right 
of  way  cleared  for  the  remaining  fifty  miles. ^"^ 

Conclusion.  A  brief  summary  of  the  work  by  years 
from  the  beginning  to  date  is  shown  in  the  statement  on  the 
following  page,   compiled    from   the   various   reports. 

It  may  be  noted  from  that  table  that  the  progress  of 
the  work  was  not  uniform.  The  explanation  is  to  be  found 
in  three  sets  of  obstacles  which  faced  the  commission  in  the 
course  of  its  work;  those  due  to  natural  or  physical  causes, 
those  due  to  the  economic  consequences  of  the  war,  and  those 
due  to  lack  of  sufficient  appropriations  by  Congress  or  the 
manner  in  which  the  appropriations  were  made. 

^°  Since  the  above  was  written,  liearings  were  held  before  the 
House  Committee  on  Territories  (67  cong-.  i  sess.,  Oct.  7,  1921)  on 
a  bill  to  authorize  the  expenditure  of  an  additional  $4,000,000  for 
completion  of  the  work.  At  these  hearings  it  was  reported  that  sixty- 
one  miles  of  track,  grading  on  which  was  practically  completed, 
and  permanent  bridges  over  the  Nenana  and  Tanana  rivers  re- 
mained to  be  constructed  while  fifty-six  miles  of  narrow-gauge  road 
was  yet  to  be  standardized. 


38        ALASKAN  ENGINEERING  COMMISSION 


Class    of    work 

Newly  constructed 
standard  gauge 
railroad  (right  of 
way  cleared, 
graded,  and  track 
laid)"     

Sidings,  spurs,  and 
yard   tracks    

Main  line  graded 
on  which  narrow 
gauge  track  has 
been  temporarily 
laid"    

Line  graded  but  no 
track  laid  or 
openings  con- 
structed      

Line  cleared  but 
not   graded    


M 

ileage  of  completed  Work  at  End  of  \ 

1                 1                 1 

ear 

191S 

1916 

1917 

1918 

1919 

1920 

13^ 

73% 

175-88 

229.8 

297-6 

382 

26.5 

30.0 

42.6 

47-2 

•• 

■■ 

•• 

9-5 

4S.5 

48.65 

35 

10 

76.8 

530 

20.0 

16.4 

40 

70.8 

30.0 

•• 

•• 

Mileage 
to  be 

constructed 


84 


50 
6 


»  Not  including  70.7  miles  of  Alaska  Northern  Railroad,  rehabilitation  of  which 
was  completed   in    1920. 

''Not  including  31.9  miles  of  the  Xanana  Valley  Railroad,  rehabilitation  of  which 
was   completed    in    1920. 

Factors  Which  Retarded  Construction.  To  treat  ex- 
haustively of  the  difficuhies  due  to  physical  causes  would  neces- 
sitate the  preparation  of  a  separate  chapter.  It  will  suffice  to 
give  one  illustration.  In  19 17  the  Nenana  River  "a  glacial 
stream  which,  when  the  snows  melt,  comes  down  at  times  with 
irresistable  force  .  .  .  abandoned  its  long  accustomed  way, 
and  cut  into  a  new  bed  and  through  trees  that  had  been  stand- 
ing for  several  generations,"  ^^  washing  out  twelve  miles  of 
track.  The  damage  was  repaired,  but  the  road  had  to  be  re- 
laid  in  what  was  deemed  a  safer  locality. 

Difficulties  Arising  from  Economic  Consequences  of  the 
War.  Reference  has  already  been  made  to  some  of  the  effects 
of  the  war  upon  construction.  The  most  important  factor 
was  the  rising  price  level,  which  was  responsible  ultimately 
for  a  cost  of  construction  about  one-third  over  the  original 
estimate.  An  increase  in  wages  of  from  20  to  25  per  cent 
was  granted  to  various  classes  of  labor  in  19 16,  following 
some  labor  disturbances  which  were  settled  by  a  board  of 
conciliation   of  the   Department   of  Labor.     In   April,    1917, 

^''  House  Committee  on  Territories,   Construction  of  Alaska  Rail- 
road, Hearings  on  H.  R.  7417,  July,  1919,  p.  8. 


HISTORY 


39 


wages  for  common  labor  were  increased  to  fifty  cents  per 
hour  and  skilled  labor  received  corresponding  increases.  In 
191 8  wages  were  again  increased,  this  time  10  per  cent  over 
the  1 91 7  rate.  Such  advances  in  wages,  together  with  sim- 
ultaneous increases  in  prices  of  materials,  were  of  necessity 
reflected  in  the  unit  prices  paid  to  station  men.  Yet,  despite 
these  wage  increases  there  was  a  scarcity  of  labor  which, 
however,  the  commission  did  not  attempt  to  meliorate  through 
recruting  from  outside  sources,  since  it  was  deemed  unde- 
sirable to  compete  with  the  war  industries. 

As  to  increases  in  the  cost  of  materials  and  transporta- 
tion, the  following  table  from  the  19 19  report  of  the  com- 
mission, showing  the  increased  cost  of  construction  of  one 
mile  of  track  from  191 5  to  1919,  is  presented: 


Estimated 

1915 

1916 

1917 

1918 

1919 

1920 

Rail 

Angle  Bars 
Track   Bolts   & 

$5,248 
357 

$6,072 
352 

$6,585 
426 

$7,550 
457 

$8,025 
460 

$8,398.61 
523-84 

Nuts 
Tie   Plates 
Track  Spikes 
Nut  Locks 

39 
186 

222 

18 

45 
282 

423 
18 

65 

287 

423 
15 

65 

325 
492 

25 

65 
360 

512 

25 

106.48 

415-40 

514.60 

27.50 

Ties 
Ballast 

1,440 
750 

1,440 
750 

1,742 
780 

1,742 
800 

1,742 
762 

1,872.00 
1 ,000.00 

Tracklaying 

600 

700 

700 

1.935 

1,013 

1.300.00 

Surfacing 

1,000 
$9,860 

1,000 

1,200 

1,300 

1,300 

1,400.00 

Total 

$11,082 

$12,223 

$14,691 

$14,264 

$15-558.43 

In  addition  to  the  above  difficulties,  there  were  long  delays  in 
deliveries  of  lumber  and  rail  owing  to  shortage  of  shipping. 

Fiscal  Difficulties.  The  act  of  March  12,  19 14,  which 
authorized  the  construction  of  the  railroad  in  Alaska,  con- 
tained the  following  provision  as  to  funds : 

!     That  the  cost  pf  the  work  authorized  by  this  act  shall  not 


40         ALASKAN  ENGINEERING  COMMISSION 

exceed  $35,ocx),ooo,  and  in  executing  the  authority  granted 
by  this  act  the  President  shall  not  expend  nor  obligate  the 
United  States  to  expend  more  than  the  said  sum. 

Under  the  above  act  appropriations  were  made  as  follows : 

March  12,  1914 $1,000,000 

March  4,   1915 2,000,000 

Feb.  29,   19 1 6 2,000,000 

July   I,   1916 6,247,620 

March  4,  1917 3,000.000 

June    12,    1917 7,500,000 

Oct.  6,   1917 4,000,000 

July   I,   1918 5.250,000 

July  II,   1919 1,964,351 

July   19,   1919 2,038,029 

$35,000,000 

From  the  above  statement  it  would  appear  that  appropria- 
tions were  made  steadily  as  the  work  progressed,  and  that 
the  commission  should  have  had  no  difficulty  on  this  account. 
But  it  was  not  the  actual  lack  of  money  which  created  dilfi- 
culties;  it  was  the  "utter  lack  of  definite  knowledge  that  the 
money  asked  for  would  be  appropriated."  ^^  There  were  four 
such  occasions.  In  the  fall  of  191 5  the  commission  was 
practically  without  funds,  and  there  was  no  certainty  that 
further  appropriations  would  be  made  until  July  i,  1916. 
Congress  finally  appropriated  $2,000,000  on  February  29, 
19 1 6,  to  continue  the  work  until  the  regular  appropriation 
should  become  available. 

The  commission  then  requested  $8,247,620  to  prosecute 
the  work  between  July  i,  1916,  and  June  30,  181 7.  but  only 
$6,247,620  was  made  available,  and  even  this  reduced  amount 
did  not  become  available  on  July  i  as  customary,  so  that 
"large  items  that  the  commission  had  planned  to  pay  out  of 
it  had  to  be  met  by  payment  from  the  small  deficiency  ap- 
propriation, and  this  at  a  time  when  we  had  continuous  day- 
light in  Alaska  for  prosecuting  the  work."  ^^ 

The   third   instance  occurred   in    191 7.     While  $3,000,000 

s8/tn/..  p.  184. 
''^Ibid.,  p.  185. 


HISTORY  41 

was  included  in  the  sundry  civil  bill  for  the  fiscal  year  19 18, 
a  deadlock  prevented  its  passage,  and  "most  energetic 
measures  had  to  be  taken  to  get  a  joint  resolution  put  through, 
to  make  this  $3,000,000  available."  Until  March  3,  when 
this  appropriation  was  secured,  the  commission  was  unable  to 
proceed  with  its  plans. 

The  same  difficulty  handicapped  the  project  in  191 9.  The 
estimate  to  carry  on  work  during  1919  was  $4,002,380,  being 
the  balance  of  the  original  authorization  of  $35,000,000. 
This  amount  was  incorporated  in  the  sundry  civil  bill,  but 
no  appropriation  was  made  till  July,  19 19.  During  the 
period  from  March  to  July,  the  forces  engaged  in  the  work 
in  Alaska  were  paid  only  about  25  per  cent  of  their  monthly 
earnings,  and  new  work  was  out  of  the  range  of  possibility. 
The  Ijest  part  of  the  season  was  thus  lost,  and  when  the 
appropriation  became  available,  it  was  too  late  to  recruit  a 
force  or  carry  on  any  significant  activity. 

Such  uncertainty  as  to  available  funds  would  have  been 
unfortunate  for  any  ordinary  governmental  or  private  activity 
but  for  the  Alaskan  railroad  project,  the  evil  was  magnified 
through  the  peculiar  local  conditions.  Supplies  for  construc- 
tion, such  as  powder,  dynamite,  and  tools,  as  well  as  food  and 
clothing  could  be  cheaply  and  advantageously  distributed  over 
winter  sled  roads  to  points  along  the  contemplated  line  of 
work  for  the  spring.  To  obtain  such  supplies  it  was  impera- 
tive to  notify  the  commission's  purchasing  agent  in  Seattle 
in  Januar)'  in  order  that  he  might  advertise  for  supplies  as 
required  by  government  procedure.  It  was  essential,  there- 
fore, that  the  engineer  in  charge  have  a  plan  of  work  the 
season  before  in  order  to  calculate  the  number  of  men  to  be 
employed  and  the  supplies  required.  Without  definite  knowl- 
edge of  the  funds  which  would  be  available,  no  such  plans  could 
be  made.  As  Colonel  Mears  expressed  it,  ."The  flow  of  a  con- 
tinuing appropriation  is  like  the  oil  to  a  smoothly  working 
engine.  If  the  oil  comes  by  fits  and  starts  and  sometimes 
stops  altogether,  the  machine  does  not  work  as  smoothly  or 


42        ALASKAN  ENGINEERING  COMMISSION 

as  advantageously."  ^^  Moreover,  because  of  shortage  of 
funds,  the  station  men  might  receive  but  one  contract  a  season 
and  then  be  obhged  to  wait  at  their  own  expense  for  another 
contract  to  be  given  out. 

Not  only  was  the  uncertainty  as  to  funds  a  hindrance  to 
efficient  work,  but  the  system  of  appropriation  by  fiscal  years 
was  unsuited  to  Alaskan  conditions.  Commissioner  Mears 
said  on  this  point : 

Nothing  could  be  more  unfortunate  for  the  Alaska  project 
than  the  appropriating  of  moneys  by  fiscal  3'ears — beginning 
and  ending  on  July  i . 

On  June  21  we  have  the  longest  day  in  the  year  in  Alaska, 
practically  continuous  daylight,  where  two  or  three  shifts  can 
be  employed  to  equal  advantage.  Now,  if  annual  appropria- 
tions could  have  been  made  available  as  [of]  January  i,  so  as 
to  plan  ahead  and  make  the  preparations  I  have  referred  to, 
greater  efficiency  would  have  resulted.  Under  the  enforced 
July  I  appropriation  system  there  was  bound  to  be  a  pause  in 
plans  and  preparations  to  wait  to  see  what  Congress  was 
going  to  do.  The  seasons  were  reversed  in  Panama,  for  on 
July  I  we  have  heavy  rains.  On  January'  i  we  were  at  the 
beginning  of  the  ''dry"  seasons,  when  most  of  our  work  was 
done.^^ 

The  evidence  presented  as  to  these  problems  at  the  Hear- 
ings of  the  House  Committee  on  Territories  in  1919  resulted 
in  the  enactment  of  the  bill,  already  described,  providing  that 
the  sum  of  $17,000,000  required  to  complete  the  project 
should  be  continuously  available  till  expended.  Of  this  sum 
$13,000,000  was  made  available  for  the  fiscal  year  1919-20. 
This  was  the  first  time  since  construction  was  undertaken  that 
ample  funds  were  available  in  advance  of  the  working  season. 

In  December  1920  the  commission  reported  that  $3,500,000 
would  be  required  in  addition  to  the  fifty-two  million  already 
authorized,  to  complete  the  entire  project  and  to  provide  for 
maintenance  and  operation  up  to  the  probable  date  of  com- 

««/6i"J.,  p.  183. 
«i  Ibid.,  p.  186. 


HISTORY  43 

pletion,  which  has  been  set  at  December,  1922.  This  in- 
crease over  the  estimate  was  the  result  of  both  the  rise  in 
wages  and  prices  during  1920  and  expenditures  authorized 
by  Congress  to  be  made  for  a  coal-cleaning  plant. ^" 

Earning  Possibilities  of  the  Railroad.  One  of  the  effects 
of  the  war  has  been  a  general  setback  in  the  economic 
development  of  Alaska.  The  production  of  gold  dropped 
nearly  45  per  cent  between  1916  and  1919.  while  the  labor 
force  employed  in  all  forms  of  mining  has  been  cut  in  half. 
There  were  no  war  activities  to  compensate  for  these  losses, 
except  for  an  increased  copper  production.  Consequently, 
many  localities  in  Alaska  are  in  the  status  of  abandoned 
mining  camps.  The  question  has  been  often  raised,  there- 
fore, as  to  whether  the  earning  power  of  the  railroad  upon 
completion  will  ever  justify  the  expenditure  made.  The 
testimony  of  Chairman  ]\Iears  before  the  subcommittee  of 
the  House  Committee  on  Appropriations  on  this  point  is 
illuminating:.     He  said: 


'&• 


My  judgment  is  that  this  railroad  is  not  going  to  pay  until 
the  country  is  developed,  but  as  soon  as  it  is  connected  through 
it  will  get  the  business  that  is  now  going  in  by  the  other  rail- 
road,^^  a  business  which  will  amount  to  about  half  a  million 
dollars  a  year.  It  will  get  what  little  business  is  developing 
.  .  .  near  Anchorage  and  the  Willow  Creek  gold  mines,  and 
it  will  develop  the  Kantishna  mining  district,  which  looks  very 
promising.'"'^ 

It  may  be  concluded,  therefore,  that  a  long  period  may 
elapse  before  the  earnings  of  the  railroad  will  justify  the 
expenditure  made.  However,  the  history  of  railroad  trans- 
portation in  Alaska,  as  outlined  in  the  preceding  pages,  dem- 

^2  House  Hearings,  Dec,  1920,  Sundry  Civil  Appropriation  Bill  for 
1922,  p.  1906  et  seq.  In  October,  1921,  this  estimate  was  raised  to 
$4,000,000.     See   footnote   56  supra. 

®^  Referring  to  the   White  Pass  and  Yukon  Railroad. 

^*  House  Hearings  on  Sundry  Civil  Appropriation  Bill  for  1922, 
1920,  p.   191 1. 


44         ALASKAN  ENGINEERING  COMMISSION 

onstrates  that  the  Federal  Government  assumed  the  responsi- 
bility of  railroad  building  only  after  it  had  been  clearly 
proven  that  private  initiative  and  capital  could  never  meet  the 
requirements  of  the  territory  under  existing  conditions,  and 
the  whole  project  was  undertaken  primarily  in  the  hope  of 
developing  Alaska,  not  with  the  thought  of  immediate  finan- 
cial return.^  ^ 

®^  See  annual  report  of  the  Secretary  of  the  Interior  for  1921. 
Appendix  D.  for  estimate  of  commercial  traffic  and  a  forecast  of 
the  effect  of  the  railroad  on  the  development  of  Alaska. 


CHAPTER   II 

ACTIVITIES 

In  the  previous  chapter  the  work  of  the  Alaskan  Engineer- 
ing Commission  was  described  in  a  general  manner  only  to 
the  limited  degree  that  such  description  was  requisite  for 
an  understanding  of  its  history.  But  from  what  has  been 
written  the  inference  is  clear  that  the  commission  had  but  one 
function,  the  construction  of  the  proposed  government  rail- 
road in  Alaska.  As  a  consequence,  of  this  single  function, 
however,  there  devolved  upon  the  commission,  a  long  list 
of  distinct  activities,  some  of  which  appear  totally  unrelated, 
at  first  sight,  to  the  central  project.  These  activities  may, 
be  classified  as  follows : 

(i)   Activities  preceding  construction 

(2)  Construction  activities 

(3)  Activities  supplementary  to  construction 

(4)  Operating  and  maintenance  activities 

(5)  Activities  relating  to  traffic  development 

In  order  to  point  out  the  relative  significance  of  each  of 
the  above  classes  of  activities  and  the  principal  items  included 
in  terms  of  the  only  available  common  unit — financial  out- 
lays— the  following  table  is  given  showing  approximate  ex- 
penditures to  December  31,  1920,  in  so  far  as  information  is 
available : 

Activities  Preceding  Construction 

Preliminary  Investigation  and  Survey    .      .       $431,000 

Placing  Final  Location 305,000 

Activities   of   Construction 

Construction  of   Railroad ''32,206,000 

^  Including  about  $3,500,000  for  construction  equipment,  supplies, 
and  machinery  which  can  be  disposed  of  ultimately  for  cash,  tliough 
probably  at  considerable  loss,  and  about  $2,678,000  of  equipment  ul- 
timately available  for  operation. 

45 


46         ALASKAN  ENGINEERING  COMMISSION 

Construction   of   Telephone   and   Telegraph        591,000 
Construction   of   Wharves   and   Docks     .     .     .     585,000 

Construction  of  Shops,  etc 368,000 

Activities  Supplementary  to  Construction 
Purchase  and  Rehabilitation  of  Tanana 

Valley    Railroad 445,000 

Purchase     and     Rehabilitation     of     Alaska 

Northern   Railroad 4,843,000 

Operation   and   Maintenance 

Railroad   Operation  2,650.000 

Coal   Mining 376,000 

Activities  Relating  to  Traffic  Development  and 

Town    Site    Improvements 305,000 

All  Other  Expenditures 125,000 

Total   Expenditures $43,230,000 

Of  the  above  activities,  those  which  preceded  construction 
and  are  now  only  of  historic  interest  have  already  been  de- 
scribed. In  this  chapter  only  those  activities  will  be  described 
which  are  being  carried  on  at  the  present  time. 

Construction  Activities.  The  work  of  railroad  construction 
proper  has  been  practically  completed.  On  October  i,  192 1, 
only  sixty-one  miles  of  track  remained  to  be  constructed  out 
of  the  total  mileage  of  the  railroad  of  539.93  miles,  and 
grading  on  this  gap  was  almost  completed  on  that  date. 
There  were  also  two  large  rivers  to  be  bridged,  the  Nenana 
and  Tanana.  The  estimated  cost  of  the  bridge  over  the 
Tanana  River,  which  will  be  1340  feet  long,  constructed  of 
steel  resting  on  concrete  piers,  is  $1,867,232  while  the  cost  of 
the  Nenana  bridge,  approximately  600  feet  long  and  of  heavy 
timbers  on  concrete  piers,  is  estimated  at  $160,000.  It  will 
be  necessar)^,  furthermore,  to  complete  the  standardization  be- 
tween Nenana  and  Fairbanks  of  the  narrow  gauge  track,  of 
which  there  remained  fifty-six  miles  on  October  i,  1921,  and 
to  ballast  and  put  into  condition  for  freight  and  passenger 
traffic  the  newly  laid  track.  When  completed  the  railroad 
will  be  539.93  miles  in  length,  including  467.62  miles  of  main 
line  between  Seward  and  Fairbanks,  37.7  miles  of  branch  line 
from  Matanuska  Junction  to  Chickaloon,  a  spur  of  2.7  miles 


ACTIVITIES  47 

leading  from  the  branch  Hne  to  the  Eska  coal  mines,  and  a 
branch  of  31.91  miles  leading  from  Happy  Station  to  Cha- 
tanika.  As  the  work  of  construction  nears  completion,  the 
commission's  force  is  being  adapted  to  the  work  of  mainten- 
ance and  operation. 

Terniinal  Facilities.  The  specific  provisions  of  the  act 
authorizing  the  construction  of  the  road,  as  well  as  its  general 
purpose,  contemplated  a  permanent  system  aimed  to  develop 
the  interior  of  Alaska  and  to  encourage  the  settlement  of 
the  public  lands.  To  attain  this  end  complete  and  well  sup- 
plied termini  were  established  with  shops,  warehouses,  depots, 
oil  and  power  houses,  docks,  wharves,  etc.  Considerable 
revenues  were  derived  from  some  of  the  above  sources.  Thus 
from  the  commercial  disposition  of  electrical  power,  the  sum 
of  $93,034.19  was  derived  in  the  period  from  March  12,  1914, 
to  March  31,  19 19.  Little  remains  to  be  done  in  the  way 
of  initial  construction  of  terminal  facilities.  An  estimate 
submitted  by  the  commission  in  October  1921  of  additional 
required  work  shows  that  increased  roundhouse  and  car  repair 
facilities  at  Anchorage  are  all  that  is  planned  for  the  present, 
the  cost  of  which  will  be  about  $60,000.^ 

Telephone  and  Telegraph  Lines.  The  act  of  March  12, 
19 14,  granted  authority  "to  construct,  maintain,  and  oper- 
ate telegraph  and  telephone  lines  so  far  as  they  may  be  neces- 
sary or  convenient  in  the  construction  and  operation  of  the 
railroad  or  railroads  as  herein  authorized  and  they  shall  per- 
form generally  all  the  usual  duties  of  telegraph  and  telephone 
lines  for  hire." 

When  the  commission  began  its  work,  there  was  no  tele- 
phonic communication  from  Seward  to  Anchorage.  Com- 
munication between  these  two  points  was  by  steamer  onh% 
which  took  twenty- four  hours.  In  191 5  a  temporary  tele- 
phone line  of  120  miles  was  erected  connecting  the  two  centers, 
equipped  either  for  telegraph  or  telephone  operation,  and  in 
1916  a  standard  8-foot  6-pin  cross-arm  line  was  built  from 

^  Hearings   1921   before  House   Committee  on  Territories,  p.   10. 


48        ALASKAN  ENGINEERING  COMMISSION 

Seward  to  mile  51.  A  telephone  system  was  also  installed 
at  Anchorage,  a  monthly  charge  being  made  for  the  service, 
while  a  tripod  line,  carrying  four  wires  was  extended  from 
mile  248  to  mile  284.  A  pioneer  line  was  built  from  that 
point  to  mile  335  and  connection  was  established  with  the 
pioneer  line  of  the  northern  division,  thus  giving,  for  the  first 
time,  direct  telegraph  and  telephone  circuits  for  both  divisions. 
Construction  of  only  ^.2  miles  of  temporary  telephone  line 
and  7.2  miles  of  permanent  telegraph  line  are  provided  for  in 
the  estimate  submitted  for  the  fiscal  year  ending  June  30,  1923. 
By  the  end  of  1920  the  permanent  line  had  reached  mile  248. 
Wagon  Roads.  Roads  have  been  built  to  connect  the  var- 
ious zones  of  operation  in  order  to  make  possible  the  hauling 
of  supplies  for  construction,  maintenance,  and  operation.  In 
addition  roads  have  been  built  on  the  to\\nisites  which  are 
adjacent  to  the  railroad  and  extensions  have  been  made  to 
connect  with  the  roads  built  by  the  Board  of  Road  Com- 
missioners "just  the  same  as  a  county  will  build  roads  con- 
necting with   State  highways  and  build  them  as   feeders."  ^ 

Rehabilitation  of  Purchased  Railroads.  Reference  has  al- 
ready been  made  to  the  evaluation  and  purchase  of  the  Alaska 
Northern  and  Tanana  Valley  railroads,  and  their  general  con- 
dition at  the  time  of  purchase  has  been  described.  The  com- 
mission estimated  in  1914  the  approximate  cost  of  placing  the 
Alaska  Northern  in  condition  for  light  traffic  to  be  $955,601. 
A  much  greater  expenditure  was  required  for  reconstruction  of 
the  railroad  for  standard  traffic  to  make  through  connection 
possible  with  the  remainder  of  the  system  from  Anchorage  to 
the  Matanuska  coal  fields.  Up  to  October  31,  1920,  about 
$3,798,000  had  been  spent,  and  it  was  estimated  that  about 
$40,000  in  addition  would  be  required  to  complete  this  phase 
of  the  undertaking. 

Expenditures  up  to  March  31,   1919,  for  rehabilitation  of 
the  Tanana  Valley  railroad,  including  also  changes  in  the  line, 

2  Hearings  before  the  House  Committee  on  Territories  on  H.  R. 
5694,  May,   1921,  p.  403. 


ACTIVITIES  49 

rebuilding  of  unsafe  bridges,  reconstruction  of  culverts  and 
trestles,  and  ballasting,  were  $44,858.23.  To  complete  the 
work  it  was  estimated  that  $84,300  would  be  required;  which 
would  make  the  total  cost  upon  completion,  including  the  pur- 
chase price  and  an  arbitrarily  allocated  portion  of  the  general 
expenditures,  $445,609.48.^ 

Operation.  The  commission  not  only  operates  the  newly 
constructed  railroad  with  which  the  two  rehabilitated,  pur- 
chased roads,  the  Tanana  Valley  and  the  Alaska  Northern,  have 
recently  been  merged  but  it  also  operates  coal  mines,  telegraph 
and  telephone  lines,  docks,  a  transfer  service,  power  plants,  etc. 

Operation  of  Railroad.  In  191 5  sufficient  repairs  were 
made  on  the  railroad  and  its  terminal  to  enable  the  operation 
of  a  gasoline  motor  combination  freight  and  a  passenger  car, 
or  a  light  engine  and  caboose,  from  Seward  to  a  point  at  a 
distance  of  thirty-four  miles.  A  tri-weekly  service  was  main- 
tained on  this  run  during  the  winter  of  1914-15.  There  were 
various  extensions  and  contractions  in  the  service  in  the  next 
four  years,  in  conformity  with  the  requirements  for  rehabili- 
tation of  the  road  and  the  available  traffic.  By  July,  1919, 
work  on  the  Alaska  Northern  had  progressed  sufficiently  to 
make  a  connection  possible  with  the  main  line  so  that  an  inter- 
mittent through  service  was  begun  from  Seward  to  Anchor- 
age). The  earnings  of  the  road  were,  of  course,  far  from 
sufficient  to  meet  expenses.  Thus,  earnings  for  the  19 19 
season  averaged  but  $1378  per  month,  while  expenses  were 
about  $11,078  per  month. 

The  Tanana  Valley  Railroad  was  operated  by  the  commis- 
sion in  the  19 17  season  under  an  agreement  with  the  owners. 
Whereas  in  1909,  the  road  showed  a  surplus  of  $115,902.77 
with  gross  earnings  of  $298,250.54,  in  1919  a  deficit  of 
$29,831.44  was  reported  on  gross  earnings  of  $48,110.77. 
The  engineer  in  charge,  in  commenting  on  the  above  deficit  in 

^  The  annual  report  of  the  vSecretary  of  the  Interior  for  1921, 
(p.  2'i4)  shows  that  the  work  of  rehabilitating  both  roads  had  been 
practically  completed  by  the  end  of  1920. 


50        ALASKAN  ENGINEERING  COMMISSION 

1919,  called  attention  to  the  fact  that  the  district  on  which 
this  road  was  dependent  for  revenue  was  being  rapidly  de- 
populated. Unless  the  country  was  rehabilitated,  there  was 
poor  prospect  for  the  road  earning  its  expenses  as  an  operat- 
ing" unit  although  as  a  feeder  to  the  main  line  in  the  future 
its  status  might  become  more  favorable. 

For  operating  the  newly  completed  line  a  terminal  district 
was  organized  in  the  Anchorage  Division  in  19 16.  There- 
after, as  rapidly  as  track  was  completed  on  this  division,  the 
Terminal  District  assumed  control,  trains  being  operated 
primarily  for  purposes  of  construction.  Fares  were  col- 
lected on  the  basis  of  six  cents  per  passenger  mile,  begin- 
ning with  January  i,  19 16,  and  reports  were  made  in  accord- 
ance with  the  requirements  of  the  Interstate  Commerce  Com- 
mission. By  July,  19 19,  it  was  possible  to  inaugurate  an 
intermittent  through  service  from  Seward  to  Anchorage. 
North  of  Anchorage  a  service  of  one  train  a  week  was  main- 
tained to  Talkeetna  and  two  trains  each  way  each  week  to 
Eska  and  Chickaloon. 

In  1920,  except  for  the  months  of  February,  March,  and 
April,  when  train  operations  were  interrupted  by  snow-slides, 
trains  were  run  twice  a  week  between  Anchorage  and  the 
northern  end  of  steel,  and  between  Anchorage  and  Seward; 
and  three  times  a  week  between  Anchorage  and  the  Eska  and 
Chickaloon  coal  mines  on  the  Matanuska  branch.  After  Oc- 
tober I,  1920  the  United  States  mail  for  points  in  interior 
Alaska  was  transported  over  this  route  to  the  end  of  steel  and 
by  horse-drawn  sleds  over  the  unfinished  part  of  the  roadbed. 

On  December  4,  1921  the  commission  advertised  acceptance 
of  through  traffic  both  ways  from  Seward  to  Fairbanks,  al- 
though transfer  at  certain  gaps  was  still  necessary  by  tem- 
porary tracks  laid  on  ice,  tramway,  or  footbridge.  It  is  ex- 
pected that  through  carriage  of  freight  on  the  road  will  be 
possible  by  the  latter  part  of  1923  or  the  early  part  of  1924.'* 

*  House  Hcarino^s  on  the  Interior  Department  Appropriation  Bill 
for  1923,  pp.  868-869. 


ACTIVITIES 


SI 


The  following  table  shows  the  mileage  operated  each 
month  from  January,  1916,  to  date,  including  yard  track  and 
sidings.''  From  October,  1918,  on,  the  figures  include  the 
mileage  operated  on  the  Alaska  Northern  Railroad  and  the 
Tanana  Valley  .Railroad  as  well  as  the  newly  constructed  line. 


Month 


January  .. 
February 
March     .  . 
April   .... 

May 

June , 

July  

August   . . . 
September 
October  ..  . 
November 
December 


1916 


12.58 

23.87 

28.55 
42.99 

43-53 
44.07 

5«-4 
5«-4 
584 
79-5 
797 


1917 


71 

71 

71 

71 

71 

71 

83 

83 
86 

100 

121 

121 


1918 


121 
121 
121 
121 
121 
160 
160 
160 
168 
294 
294 
294 


1919 


360 

366 

370 
370 
370 
372 
374 
385 
386 
409 
414 
414 


1920 


414 
414 
414 
414 
414 
414 
414 
414 
445 
445 
445 
456 


The  receipts  from  the  operation  of  the  road  in  1920 
amounted  to  about  $25,000  per  month,  which  was  not,  of 
course,  sufficient  to  meet  expenses. 

The  estimated  cost  of  operating  the  line  for  the  fiscal  year 
ending  June  30,  1923  has  been  placed  at  $1,428,030,  and  rev- 
enues have  been  estimated  at  $660,000;  leaving  a  net  operat- 
ing deficit  of  $768,030.^ 

Operation  of  Coal  Mines.  Reference  has  already  been 
made  in  the  first  chapter  to  the  operation  of  a  coal  mine  by  the 
commission  following  the  failure  of  a  private  operator  to 
supply  the  coal  required  for  construction  and  operation  of  the 
railroad.  In  the  coal  mining  operations  which  were  con- 
ducted at  the  Eska  Creek  and  Chickaloon  mines  the  commis- 
sion has  had  a  three-fold  purpose :  the  supplying  of  fuel  at  low 
cost  for  the  railroad  and  the  communities  nearby,  the  ex- 
tensive  prospecting  and   development   work   to  ascertain   the 

5  Not  including  $893,980  for  maintenance  of  line.  In  the  fiscal 
year  1921  the  revenue  from  passenger  traffic  was  $91,935.65,  from 
freight  traffic  $109,389.69,  from  mail,  baggage,  express,  etc., 
$238,330.45,  a  total  of  $439-655-79- 

^  For  miscellaneous  traffic  statistics,  by  months,  see  annual  report 
of  the  Secretary  of  the  Interior  for  1921,  p.  217. 


52 


ALASKAN  ENGINEERING  COMMISSION 


quantities  availal)le  and  the  ascertainment  of  the  cost  of  pro- 
duction. The  output  of  coal  up  to  the  present  time  has  been 
more  than  sufficient  to  meet  the  needs  of  the  commission  J 
The  following  table  gives  the  output  and  costs  of  production 
for  the  period  from  June,  19 17,  to  Feljruary,  19 19,  as  re- 
ported by  the  commission : 


Average 
per  ton 

Coal    shipped    to    Alaska    Engineering    Com- 
mission  at   Anchorage 

From    Eska    Mine        .      .      .     short  tons 
From    Chickaloon         .      .      .           do. 

80,768.80 
5.33743 

Total 

86,106.23 

Cost      of      mining,      including      development 
work : 

Eska  Mine 

Chicaloon 

$377,683.44 
103,111.47 

$4.67 
19.32 

Total 

$480,794.91 

$5-58 

Cost  of  development  work  included  in  above : 

Eska  Mine 

Chickaloon 

$76,294.61 
103,111.47 

$  .94 
19.32 

Total 

$179,406.08 

$2.08 

Net    cost   of    mining    coal,    exclusive    of    de- 
velopment   work 

Charges  for  Coal  Shipped  to  Alaskan 

Engineering  Commission 

18,159.68    short    tons,    at    $5    .      .     $90,798.10 

77,964.61    short    tons,    at    $6    .      .     467,679.66 

$301,388.83 
$480,794.91 

$77,682.85 
$558,477.76 

$3-50 

$5-58 

Total $558,477.76 

Profit  over  cost  of  mining  and  development 

.... 

Up    to    June    30,     1 92 1     there    was    expended    at    Eska 
$1,130,242.49,    of    which   $225,111.79   represents   permanent 

^  In  tlie  period  from  June,  1917,  to  June  30,  1921,  the  saving  was 
estimated  at  $1,702,860. 


ACTIVITIES 


53 


investment.  The  remainder  of  $905,130.70  was  spent  in 
maintenance  and  operation,  for  every  $5.32  of  which  there 
was  produced  a  ton  of  coal.  At  Chickaloon,  the  expenditure 
for  mine  development  was  $202,413.27.  This  mine  was 
turned  over  to  the  Navy  in  1920  with  a  view  to  developing 
a  fuel  supply  for  the  Pacific  Fleet.  Reimbursement  has  not 
been  made  to  the  commission  by  the  Navy  for  the  expendi- 
ture made  in  development  work. 

Operation  of  Docks.  The  commission  operates  three  docks  : 
the  Seward  dock  which  is  operated  the  full  twelve  months  in 
the  year;  the  Anchorage  dock  which,  on  account  of  the  closing 
of  the  harbor  by  ice  for  five  months,  is  only  open  seven 
months,  and  the  Nenana  dock  which  is  operated  only  about 
five  months  because  of  the  freezing  of  the  Tanana  River.  A 
large  portion  of  the  traffic  over  all  these  docks  consists  of 
freight  for  the  use  of  the  commission  itself.  No  detailed 
figures  are  available  for  dock  operations  at  Nenana,  but  for 
Anchorage  and  Seward  the  data  for  1920  are  as  follows: 


Anchorage 

Seward 

24,695-47 

$32,443-95 
327,368.45 

2.1 

22,034.17 
$23,234.06 
92,445.62 
1-3 

2.03 

1-55 

Total   freight   (tons) 

Operating  expense  ^ 

Capital  account 

Total    expense   per  ton   handled 

Total  credit  per  ton  handled  '•* 

The  total  operating  cost  in  1920  of  operating  the  three 
docks  was  about  $65,000. 

Operation  of  Power  Plants.  The  power  plant  at  Nenana 
furnishes  electrical  energy,  steam  heat,  and  water  to  the  build- 
ings and  shops  of  the  commission,  and  lights  on  the  Commis- 
sion Reserve  and  the  Nenana  Townsite.  It  also  furnishes 
light  and  power  to  consumers  within  the  Nenana  Townsite. 
In  1920,  173,460  K.  W.  hours  were  distributed,  of  which 
98,100  K.  W.  hours  were  consumed  by  the  commission, 
8,837  K.  \V.  hours  by  the  Nenana  Townsite,  and  66,523  K.  W. 

(^)  Not  including  light  and  heat  for  the  docks  estimated  at  about 
10  cents  per  ton  of  freight  handled. 

(^)   Including  6  per  cent  interest  on  capital  account. 


54        ALASKAN  ENGINEERING  COMMISSION 

hours  by  commercial  customers.  From  power  sold,  motor 
rentals,  and  meter  deposits,  $11,617.75  was  collected  during  the 
year.  At  Anchorage,  the  commission  furnishes  the  town  with 
light  and  power  over  one  meter.  Distribution  of  the  cost  is 
made  by  the  town  itself  among  the  consumers  of  the  power. 
Operation  of  Other  Services.  A  receiving  and  forwarding 
department  at  Anchorage  handles  all  freight  and  passengers 
arriving  by  steamer.  In  1920  the  volume  of  traffic  handled 
was  as  follows : 

Commercial  freight  Tons 

Inbound 5,089.49 

Outbound 506.31 

Commission  freight 

Inbound 18,602.85 

Outbound 450.18 

Express  and  mail  handled    46.64 

Grand    Total    24,695.47 

Passengers    handled    1,302,00 

Several  sawmills  are  being  operated  to  supply  timber  for 
the  work  of  construction  and  maintenance  of  the  railroad,  ter- 
minals, docks,  warehouses,  etc.  A  telegraph  and  telephone 
system  is  operated  primarily  in  connection  with  the  work  of 
railroad  construction,  maintenance,  and  operation,  but  service 
is  also  extended  to  the  various  towns  along  the  line  of  the 
railroad.  Base  hospitals  are  maintained  at  Anchorage  and 
Nenana  and  field  hospitals  at  various  construction  points. 

Maintenance.  As  the  work  of  construction  nears  comple- 
tion, the  most  important  function  of  the  commission,  next  to 
operation  of  the  railroad,  becomes  that  of  maintenance,  not 
only  of  the  track  and  transportation  equipment,  but  of  all  the 
facilities  established  during  the  eight  years  of  construction. 
Repairs  are  being  made  constantly  to  the  terminal  buildings, 
docks,  warehouses,  bridges,  sawmills,  snowsheds,  locomotives, 
cars,  marine  equipment,  etc.  Many  of  the  commission's  staff 
are  now  being  utilized  for  this  work.     It  is  estimated  tliat 


ACTIVITIES  55 

for  the  fiscal  year  1923,  the  maintenance  cost  will  be  $722,240 
for  the  line  from  Seward  to  mile  264,  including  the  Matanuska 
branch,  and  $171,740  for  the  line  from  mile  264  to  Fairbanks, 
including  the  Chatanika  branch. 

Development  of  Traffic.  Through  the  Land  and  Industrial 
Department,  the  commission  until  1920  gathered  descriptive 
and  statistical  data  on  the  population,  agricultural  output,  and 
general  economic  progress  of  the  territory  tributary  to  the 
railroad;  furnished  information  to  prospective  home-steaders ; 
and  carried  on  such  other  activities  as  would  ordinarily  In 
a  privately  constructed  railroad  be  under  a  traffic  department. 
Following  the  reorganization  of  November,  1919,  the  Land 
and  Industrial  Department  was  placed  directly  under  the 
Southern  Division  Office,  and  jurisdiction  in  these  matters 
for  the  Northern  Division  was  assigned  to  the  Engineer  in 
Charge. 

Doubt  as  to  the  commission's  statutory  authority  to  engage 
vigorously  in  traffic  promotion  activities  and  lack  of  appro- 
priations for  these  purposes  prevent  the  development  and  ex- 
ecution by  the  commission  of  a  constructive  plan  to  populate 
the  country  through  which  the  railroad  passes  and  to  promote 
the  establishment  of  local  industries. ^^  The  most  important 
activities  relating  to  traffic  development  are  those  connected 
with  the  establishment  and  management  of  townsites,  details 
of  which  have  been  given  in  Chapter  I. 

The  policy  of  expenditures  for  townsite  purposes  has  been 
recently  abandoned  by  the  commission,  and  it  is  gradually 
withdrawing  from  its  townsite  activities.  Thus  the  town  of 
Anchorage  has  been  incorporated  and  the  commission  no 
longer  supervises  its  management.  The  public  utilities,  how- 
ever, have  not  been  taken  over  by  the  town,  and  the  com- 
mission furnishes  light  and  power, 

^°  This  matter  awaits  the  general  reorganization  of  the  admin- 
istration of  national  property  and  interests  in  Alaska,  which  is  now 
under  consideration  by  Congress.  See  House  Hearings  before  the 
Committee  on  Territories  on  H.  R.  5694,  67  cong.  i,  sess.  (May  1921). 


56        ALASKAN  ENGINEERING  COMMISSION 

The  first  sale  of  lots  under  the  regulations  took  place  from 
July  lo  to  17,  191 5,  at  Anchorage,  and  others  followed  from 
time  to  time  as  the  railroad  advanced  through  the  country. 
On  May  31,  19 19,  the  number  of  lots  sold  in  each  locality 
and  the  amounts  paid  were  as  follows : 


Anchor- 
age 

Nenana 

Matanu- 
ska 

a  Seward 

Wasilla 

Total 

Lots    sold    

Average    price    per    lot 

Total    amount    of    such 

sales      

1,075 
$193 

$208,065 

145,211 
62,854 

430 
$320 

$137,790 

74,665 
63,125 

59 

$158 

$9,355 

3-961 
5,394 

150 
$182 

$27,345 

27,505 
140 

53 
$105 

$5,565 

4,125 
1,440 

1,767 

$388,120 
255,167 

Payments     received     tc 
date     

Deferred     payments     . 

132,953 

As  to  the  disposition  of  these  revenues,  the  act  of  March 
12,  19 1 4,  provided  that  any  revenue  from  the  lease,  sale,  or 
disposal  of  public  land  should  be  covered  into  the  Treasury 
of  the  United  States  as  a  miscellaneous  receipt.  But  to  re- 
imburse the  commission  for  expenditures  made  by  it  for 
public  purposes  in  the  towns  and  to  provide  for  whatever 
additional  expenditures  would  be  required  in  this  direction,  by 
an  act  of  April  17,  1917,^^  fifty  per  cent  of  the  proceeds  from 

a  At  Seward  there  were  two  tracts  of  land  owned  by  the)  Government  which  were 
within  the  incorporated  limits  of  the  town.  During  the  summer  of  191 5  these  tracts, 
known  as  the  Federal  and  Cliff  Additions,  were  subdivided  into  lots.  Sales  of  lots 
within  these  additions  were  held  on  September  11  and  September  21,  igi6.  The 
regulations  for  the  sale  of  these  lots  were  different  from  those  in  the  towns  where 
the  Government  owned  all  the  property.  To  avoid  complications  in  the  matter  of 
taxes,  street  assessments,  etc.,  these  lots  were  sold  outright,  half  the  purchase  price 
to  be  paid  at  time  of  sale,  the  balance  being  due  in  one  year.  There  are  no  restric- 
tions or  conditions  in  the  sale.  The  payments  are  required  within  one  year  in 
order  that  patents  can  issue  and  the  town  be  thereby  enabled  to  ta.x  the  lots  as  soon 
as  practicable. 

^^  That  until  June  30,  1918,  not  to  exceed  50  per  centum  of  the 
moneys  received  from  the  sale  of  lots  or  tracks  within  any  town- 
site  or  townsites  heretofore  or  hereafter  sold  pursuant  to  the  pro- 
visions of  the  act  of  March  12,  1914.  entitled  "An  act  to  authorize 
the  President  of  the  United  States  to  locate,  construct,  and  operate 
railroads  in  the  Territory  of  Alaska,  and  for  other  purposes,"  may, 
in  the  discretion  of  the  Secretary  of  the  Interior,  be  set  apart  and 
expended  within  the  respective  townsites  in  which  such  lots  or 
tracts  are  sold,  for  the  purpose  of  preparincf  the  land  for  occupancy, 
the  construction,  installation,  and  maintenance  of  public  utilities  and 
improvements,  and  the  construction  of  public-school  buildings,  under 
such  terms  and  conditions  as  the  Secretary  of  the  Interior  may 
prescribe,  and  the  moneys  so  set  apart  and  designated  are  appro- 
priated for  the  purpo.se  of  carrying  these  provisions  into  effect; 
Provided,  That  such  moneys  as  may  have  been  heretofore  or  may 


ACTIVITIES 


57 


the  sale  of  tovvnlots,  until  June  30,  19 18,  was  granted  to  the 
commission.  On  July  31,  19 17,  the  Secretary  of  the  Treasury 
issued  a  warrant  for  transfer  and  appropriation  of  $82,184.32 
from  "proceeds  of  townsites"  to  the  "cost  of  construction 
and  operation  account.''  This  lot  fund  was  utilized  for  the 
building  of  school  houses ;  to  meet  expenses  of  local  govern- 
ment; to  pay  for  the  improvement  of  streets  and  sidewalks 
abutting  on  municipal  and  federal  property,  and  for  general 
public  welfare. 

The  following  statements  of  expenditures  to  Dec.  31,  1919, 
in  the  various  townsites,  showing  the  method  of  reimburse- 
ment, indicate  the  magnitude  of  the  work  in  the  administra- 
tion of  the  townsites : 


Expenditures   by   the  Alaskan    Engineering  Commission   in  Townsites  to 

December  31,  igig 


Anchorage 

Matanuska 

Wasilla 

Seward 

Water     System     

Sewer     System     

Clearing  Lots  and  Streets 

and/or    grading     

Sidewalks     

$38,472.91 
16,834.56 

27,254.09 
25,519.64 

46,848.95 
2,497.01 

8,161.79 

33,069.05 
a76,4i4-54 

$4,621.08 

3,073-05 

968.94 

2,122.09 

$     135-85 
?  1,730-54 

44-48 

$4,969.21 
675.iS 

Drainage    and    Sanitation 
School    House     

Municipal    Building    .... 

Salaries:    Townsite    Man- 
ager   and    Health    Offi- 
cer      

Street    and    sidewalk    im- 
provements        abutting 
muncipal     and     federal 
blocks,      trunk      sewer, 
cemetery         improve- 
ments,   etc 

Maintenance     

Total       all       expendi- 
tures      

$275,072.54 

b$  1 0,993.89 

$1,910.87 

C$5,907.58 

hereafter  be  expended  for  such  purposes  under  ,and  b>  authority 
of  the  Alaskan  Engineering  Commission  from  the  funds  at  its 
disposal  shall  be  reimbursed  from  the  amount  designated  for  the 
purposes  herein  provided:  Provided,  further,  That  a  report  of  the 
expenditures  hereunder  shall  be  made  to  Congress  at  the  beginning 
of  each  regular  session. ^^ 

^  The    commission    attempted,    without    success,    to    have    this    pro- 
vision in  the  acts  of  appropriation  for  the  two  succeeding  years. 

a  Including    fire    protection,    sanitation,    streets    and    sidewalks    from    beginning   of 
town  to  June   30,    1919. 

b  Including  $208.73  for  engineering  and  supervision, 
c  Including   $263.09   for   bridge  construction. 


58 


ALASKAN  ENGINEERING  COMMISSION 


Method  or  Reimbursement  to  Alaskan  Engineering  Commission   for 
Expenditures   Made  on   Townsites  to  December  31,   igig 


Assessments  levied  .... 
"  paid        .... 

Balance  due  from  as- 
sessments      

General  expenses  under 
lot     fund    

Receipts     from    lot    fund 

Balance  due  Alaskan 
Engineering  Commis- 
sion       

Lots    sold    

Total    sale    price    

Total     paid     


Anchorage 


Matanuska 


fi8i,772.88 
14S.798.86 

335,974.02 

93,299-66 
64,760.40 


28,539.26 
1,285 
233,930.00 

158,029.68 


1,541-55 
1,081. 75 

459.80 

9,912.14 
1,932-69 


7,979-45 

61 
9,880.00 
4,010.81 


Wasilla 


;i,9io.87 
1,090.31 


b  820.56 

53 
5,765-00 
4,213.00 


Seward 


$5,907-58 
7,723.50 


c 

144 
27.330.00 
27,315-00 


a  Including  deferred  payments  amounting  to   $11,928.63  in   1920. 
b  Of    which    only    $555.94    is    available    from    the     lot    fund,    leaving    a 
$264.62. 

c  $7,749.92   available  for   future   expenditure. 


deficit    of 


CHAPTER  III 
ORGANIZATION 

The  Alaskan  Railroad  Construction  Act  imposed  no  re- 
strictions upon  the  President  in  the  choice  of  means  of  execut- 
ing the  purpose  of  the  act.  It  was  thus  made  possible  to 
prosecute  the  work  of  construction  free  from  most  of  those 
restrictions  normally  associated  with  a  government  enterprise 
of  this  nature. 

It  was  fortunate  that  there  was  this  freedom  of  action  and 
<^hat  no  specific  organization  had  been  prescribed  by  Congress ; 
for  the  project  involved  four  different  stages,  for  each  of 
which  changes  in  organization  were  necessary  to  effect  the 
best  adaptation  to  the  requirements  of  the  work  in  hand.  In 
the  first  stage,  from  the  date  of  appointment  of  the  commis- 
sion to  the  beginning  of  construction,  the  work  was  to  make 
the  investigations  and  surveys,  and  an  organization  was  set 
up  which  was  deemed  best  for  this  purpose.  Three  districts 
were  created,  each  under  administrative  direction  of  one  of 
the  Commissioners,  the  first  covering  the  region  south  of 
Knik  Arm,  the  second  extending  northward  to  Broad  Pass, 
and  the  third  covering  the  section  north  of  Broad  Pass. 
Eleven  fully  equipped  parties  were  organized  for  reconnais- 
sance and  survey  in  these  districts. 

The  second  stage  from  April  to  December,  191 5,  covers 
the  period  when  the  commission  organized  for  the  work  of 
construction.  By  Executive  Orders  of  April  10  and  April 
30,  191 5,  the  supervision  and  control  of  the  entire  project 
was  vested  in  the  Secretary  of  the  Interior,  as  completely  as 
if  "said  work  had  been  placed  by  law  under  the  jurisdiction 
and  control  of  the  Department  of  the  Interior."  The  Sec- 
retary, however,  allowed  the  commission  general  freedom  of 
action  in  location  and  construction,  and  was  guided  almpst 

59 


6o         ALASKAN  ENGINEERING  COMMISSION 

entirely  by  the  advice  of  the  commission  even  in  questions  of 
policy.^  He  stated  in  February,  19 19,  that  "the  work  of 
locating  and  constructing  the  road  has  been  left  in  their  hands 
entirely.  The  only  instruction  which  they  (the  Commis- 
sioners) received  from  me  was  that  they  should  build  the 
road  as  if  they  were  working  for  a  private  concern,  selecting 
the  best  men  for  the  work  irrespective  of  politics  or  pressure 
of  any  kind.  I  have  not  asked  them  to  appoint  one  man."  - 
By  the  Executive  Orders  referred  to,  the  Chairman  of  the 
commission,  who  was  to  be  designated  by  the  Secretary  of 
the  Interior,  was  given  immediate  charge  of  the  work  in 
Alaska,  his  important  powers  and  duties  being  enumerated  as 
follows : 

1.  Power  of  approval  or  disapproval  of  all  adminis- 
trative matters  connected  with  the  work  in  Alaska. 

2.  Power  to  organize  and  subdivide  departments, 
among  which  there  was  to  be  a  department  of  construc- 
tion and  engineering,  of  which  the  Chairman  was  to  be 
chief   engineer. 

3.  Power  to  assign  duties  to  each  department. 

4.  Power  to  appoint  heads  of  departments  and  fix 
their  salaries  subject  to  disapproval  of  the  commission 
as  a  whole;  the  heads  to  be  allowed  to  fix  primarily  the 
salaries  of  employees  in  their  respective  departments  after 
consultation  with  the  Chairman  and  subject  to  disap- 
proval of  the  commission. 

5.  Power  to  designate  the  district  in  which  supplies 
should  be  advertised  for  publicly. 

6.  Power  to  grant  the  other  two  members  of  the  com- 
mission leave  of  absence. 

7.  Permission  to  assume  presidency  of  Alaska  North- 
ern Railroad  after  its  purchase. 

The  conmiission  as  a  whole  was  charged  with  the  follow- 
ing duties: 

^  See  statements  of  Commissioners  at   1919   Hearings  relative  to 
purchase  of  the  Alaska  Northern,  etc. 

2  Hous€  Committee  on  Territories,  Hearings,  1919,  p.  8.. 


ORGANIZATION  6i 

1.  The  general  duty  of  preparing  and  adopting  plans 
for  construction. 

2.  The  employment  of  such  force  as  might  be  from 
time  to  time  necessary. 

3.  The  making  of  all  contracts  for  the  purchase  of  the 
necessary  supplies  and  plant  for  this  work. 

4.  Immediate  conduct  of  affairs  of  the  Alaska  North- 
ern Railroad. 

5.  Cooperation  with  the  duly  constituted  authorities 
in  Alaska  to  preserve  law  and  order. 

6.  Preparation  and  maintenance  of  such  arrange- 
ments as  required  for  health  of  employees  and  a  system 
of  compensation  for  accidents. 

Under  the  above  division  of  powers  and  functions  the  com- 
mission began  the  work  of  construction  proper.  Administra- 
tive headquarters  were  established  at  Seward,  Alaska,  where 
the  office  of  the  Chairman  and  Chief  Engineer  was  to  be 
located.  Commissioner  Mears  was  placed  in  charge  of  new 
construction,  while  Commissioner  Riggs  was  to  make  the  final 
location  north  from  Broad  Pass  to  Fairbanks. 

The  third  stage,  from  the  beginning  of  1916  to  the  end  of 
191 7,  may  be  termed  the  stage  of  expansion  of  organization, 
when  new  divisions  and  departments  were  organized  to  meet 
the  rapidly  enlarging  field  of  activity.  Three  construction 
divisions  were  created,  the  Anchorage  Division,  the  Seward 
Division,  and  the  Fairbanks  Division,  while  the  Land  and 
Industrial  Department  was  organized  and  the  office  of  Engi- 
neering Representative  in  Seattle  established.  The  construc- 
tion work  on  the  Anchorage  Division  was  in  turn  subdivided 
into  three  sections,  the  Matanuska  District,  the  Turnagain 
Arm  District,  and  the  Talkeetna  District,  while  operation  and 
maintenance  was  assigned  to  the  terminal  district.  A  General 
Storekeeper's  Department,  to  attend  to  all  matters  pertaining 
to  material,  supplies,  and  shipping  was  also  established  in  the 
Anchorage  Division. 

Jhe  fourth  stage,  from  January,   i^iSj  to  January^   1919^ 


62         ALASKAN  ENGINEERING  COMMISSION 

covers  the  period  of  contraction  of  organization  in  direct 
consequence  of  the  active  participation  of  the  United  States 
in  the  World  War.  Two  of  the  Commissioners  resigned  and 
only  the  Chairman  remained  to  carry  on  the  work  which, 
meanwhile,  rapidly  converged  to  the  point  where  operation 
and  maintenance  rather  than  new  construction  became  the 
center  of  activity.  The  last  stage,  which  is  the  present  one, 
is  marked  by  the  reorganization  and  integration  of  the  var- 
ious divisions  and  departments  in  an  effort  to  meet  the  need 
for  unification,  compactness,  and  centralization  of  organiza- 
tion, the  entire  work  being  placed  under  a  single  Commis- 
sioner. 

Thus  the  organization  history  reveals  an  interesting  transi- 
tion from  a  somewhat  chaotic  but  flexible  organization,  such 
as  was  best  suited  to  the  ascertainment  and  solution  of  the 
many  undefined  problems  to  be  encountered  in  the  preliminary 
stage  of  a  large  construction  project  in  a  relatively  unknown 
country,  to  a  systematic,  integrated,  and  centralized  organiza- 
tion best  suited  to  the  requirements  of  a  nearly  completed 
railroad  construction  project  in  a  country  now  relatively  well 
known.  It  would  not  be  feasible  to  describe  in  detail  beyond 
the  general  outline  already  given,  the  character  of  the  or- 
ganization at  each  stage,  or  the  mechanism  of  the  transition. 
In  this  chapter  the  organization  is,  therefore,  described  in 
detail  only  as  it  exists  at  the  present  date. 

Administration.  The  President  of  the  United  States,  under 
the  act  of  March  12,  1914,  has  full  authority  and  is  generally 
responsible  not  only  for  the  work  of  construction  proper  but 
also  for  all  preliminary,  supplementary,  and  ancillary  matters 
involved  therein.  The  Secretary  of  the  Interior  has  been 
designated  by  the  President  as  the  executive  officer  of  the 
Government  to  direct  the  work.  The  Secretary  of  the  Inter- 
ior grants  almost  complete  autonomy  to  the  organization  in 
the  field  under  the  direction  of  the  Chairman  and  Chief  Engi- 
neer liaison  between  the  Department  of  the  Interior  and  the 


ORGANIZATION  63 

field  work  being  maintained  through  an  office  in  the  Interior 
Building,  the  personnel  of  which  includes  one  senior  clerk 
and  a  stenographer. 

The  general  administrative  offices  are  at  Anchorage,  with 
an  administrative  staff  as  follows : 

Chairman  and  Chief   Engineer 

Assistant   Chief    Engineer 

Chief   Clerk 

Bridge  Engineer 

Special  Disbursing  Agent 

Manager  Land  and  Industrial  Department 

Superintendent  Telegraph  and  Telephone  Lines 

Divisions.     There   are    five    general    divisions    under   the 
administrative   staff   created   by   the    Chairman   by   order  of 
November  22,  1919,  as  follows: 
Functional  Divisions 

1.  Southern   Division 

2.  Northern   Division 
Institutional  Divisions 

1.  Supply   Division 

2.  Purchasing  Division 

3.  Accounting  Division 

Southern:  This  division,  under  direction  of  the  Assistant 
Chief  Engineer  comprises  the  district  from  Seward  (mile  o) 
to  Broad  Pass  (mile  315),  including  also  all  spurs  and 
branches  as  well  as  the  operation  of  the  coal  mines  in  the 
Matanuska  fields. 

The  headquarters  of  this  division  are  at  Anchorage,  and 
its  administrative  staff  is  merged  with  the  office  force  of  the 
general  administrative  staff.  The  subdivisions  are  as 
follows : 

I.  The  Railroad  Maintenance  and  Construction 
Division,  which  has  the  responsibility  for  the  mainten- 
ance and  construction  of  the  railroad  in  the  Southern 
Division.     This  railroad  division  is  under  the  direction 


64        ALASKAN  ENGINEERING  COMMISSION 

of  an  "Engineer  of  Maintenance  and  Construction" 
whose  assistants  are: 

An  Assistant  Engineer  of  Maintenance  and  Con- 
struction. 

A  Superintendent  of  Construction,  with  local  juris- 
diction over  maintenance  from  Seward  (mile  o)  to 
Anchorage  (mile  114). 

An  Assistant  Superintendent  of  Track,  with  local 
jurisdiction  over  maintenance  and  construction  of 
track  from  Anchorage  northward  to  end  of  track  and 
the  Matanuska  Branch  Line  and  coal  spur. 

An  Assistant  Superintendent  of  Construction,  with 
local  supervision  over  transportation  and  camps  in  the 
construction  district,  extending  northward  from  the 
end  of  steel, 

2.  Railroad  Operating  Division,  including  the  follow- 
ing departments  reporting  to  the  Engineer  of  Mainten- 
ance and  Construction. 

Transportation  Department,  under  the  Trainmaster. 

Mechanical  Department,  under  the  Master  Mechanic. 

Telegraph  and  Telephone  Department,  under  a 
Superintendent. 

Drafting  Department,  under  the  Chief  Draftsman. 

Anchorage  Dock,  under  the  Receiving  and  Forward- 
ing Agent. 

Townsite  and  Railroad  Record,  under  the  Manager 
and  Editor. 

Disbursing  Office,  under  the  Special  Disbursing 
Agent. 

Hospital,  under  the  Chief  Surgeon. 

3.  A  Mining  Department,  under  direction  of  a  Resi- 
dent Mining  Engineer,  assisted  by  a  Superintendent  of 
Mines,  charged  with  operation  and  development  of  the 
Matanuska  coal  fields  at  Eska  Creek  and  Chickaloon. 

Northern.     This  division,  the  headquarters  of  which  is  at 
Nenana  includes : 


ORGANIZATION  65 

1.  The  operation  and  maintenance  of  the  Tanana 
Valley  Railroad  between  Fairbanks  and  Chatanika  and 
Fairbanks  and  Chena;  covering  also  the  new  trackage 
on  the  Coldstream  line  north  of  Tanana  River  to  mile 
414  under  a  Superintendent  and  Disbursing  Agent  whose 
office  is  at  Fairbanks. 

2.  The  operation  and  maintenance  of  completed  track 
(standard  gauge)  southward  from  Nenana  (mile  414)  as 
well  as  all  new  construction  south  toward  Broad  Pass, 
under  the  local  direction  of  the  Superintendent  of  Con- 
struction. 

3.  A  Disbursing  Department,  under  a  Special  Disburs- 
ing Agent. 

4.  Nenana  Townsite,  under  a  Townsite  Manager. 

5.  hospital  Department,  under  a  Chief  Surgeon. 
Supply.     This  division,  under  an  Engineer  in  Charge  with 

headquarters  at  Seward,  has  four  general  duties : 

1.  Supervision  over  all  supplies  required  for  construc- 
tion and  all  supply  offices.  All  orders  and  requisitions 
for  supplies  are  routed  to  the  Supply  Division  and  are 
disposed  of  according  to  directions  of  the  Engineer  in 
Charge. 

2.  Control  of  all  shipments  of  ocean  freight,  in  and 
out  bound. 

3.  The  operation  of  the  Seward  Dock. 

4.  Management  of  the  Employment  Office. 
Accounting.     The  Accounting  Division,  the  head  of  which 

is  an  Examiner  of  Accounts,  is  located  at  Anchorage  and 
has  charge  of  all  accounting  matters  for  all  departments  and 
divisions.     It  includes  the  following  offices : 

1.  Disbursements 

2.  Appropriation  Accounts  and  General  Statements 

3.  Auditor  of  Station  Agents 

4.  A   Southern  Division  Accounts 

5.  A   Northern  Division  Accounts 

6.  A  Supply  Division  Accounts 


(^        ALASKAN  ENGINEERING  COMMISSION 

Purchasing.  The  Purchasing  Division,  under  the  General 
Purchasing  Agent,  is  located  at  Seattle.  In  addition  to  hand- 
ling all  details  relating  to  the  purchase  of  supplies  and  equip- 
ment for  the  work  in  the  field,  it  has  supervision  of  all  Seattle 
activities  of  the  commission,  including  the  hiring  of  employees, 
the  receipt  and  shipment  of  ocean  freight,  and  the  inspection 
of  material  and  supplies  purchased.^ 

Personnel.  The  number  of  employees  in  each  division  as 
of  April  15,  192 1  is  summarized  in  the  following  table: 


Purchasing 

15 

Supply 

133 

Accounting 

34 

Southern 

Maintenance   and 

Operation 

772 

Construction 

1,136 

Administration 

9 

Northern 

Maintenance   and 

Operation 

154 

Construction 

637 

Administration 

4 

Total,   all   divisions 

2,894 

Pay  roll 

2,047 

Contractors 

847 

^  This  inspection  is   usually   done   by   contract  with   a   commercial 
company  specializing  in  that  field. 


APPENDIX  I 

OUTLINE  OF  ORGANIZATION 

Explanatory  Note 

The  Outlines  of  Organization  have  for  their  purpose  to 
make  known  in  detail  the  organization  and  personnel  pos- 
sessed by  the  several  services  of  the  national  government  to 
which  they  relate.  They  have  beeen  prepared  in  accordance 
with  the  plan  followed  by  the  President's  Commission  on 
Economy  and  Efficiency  in  the  preparation  of  its  outlines  of 
the  organization  of  the  United  States  government.  ^  They 
differ  from  those  outlines,  however,  in  that  whereas  the  Com- 
mission's report  showed  only  organization  units,  the  presenta- 
tion herein  has  been  carried  far  enough  to  show  the  personnel 
embraced  in  each  organization  unit. 

These  outlines  are  of  value  not  merely  as  an  effective  means 
of  making  known  the  organization  of  the  several  services. 
If  kept  revised  to  date  by  the  services,  they  constitute  exceed- 
ingly important  tools  of  administration.  They  permit  the 
directing  personnel  to  see  at  a  glance  the  organization  and 
personnel  at  their  disposition.  They  establish  definitely  the 
line  of  administrative  authority  and  enable  each  employee 
to  know  his  place  in  the  system.  They  furnish  the  essential 
basis  for  making  plans  for  determining  costs  by  organiza- 
tion division  and  sul)division.  They  afford  the  data  for  a 
consideration  of  the  problem  of  classifying  and  standardizing 
personnel  and  compensation.  Collectively,  they  make  it  pos- 
sible to  determine  the  number  and  location  of  organization 
divisions  of  any  particular  kind,  as,  for  example,  laboratories, 
libraries,  blue-print  rooms,  or  any  other  kind  of  plant  pos- 
sessed by  the  national  government,  to  what  services  they  are 

^  House  Doc.  458,  62d.  Congress,  2nd  Session,  1912 — 2  vols. 

67 


68 


ALASKAN  ENGINEERING  COMMISSION 


attached  and  where  they  are  located,  or  to  determine  what  ser- 
vices are  maintaining  stations  at  any  city  or  point  in  the  United 
States.  The  Institute  hopes  that  upon  the  completion  of  the 
present  series,  it  will  be  able  to  prepare  a  complete  classified 
statement  of  the  technical  and  other  facilities  at  the  disposal  of 
the  government.  The  present  monographs  will  then  furnish 
the  details  regarding  the  organization,  equipment,  and  work 
of  the  institutions  so  listed  and  classified. 


OUTLINE  OF  ORGANIZATION 

ALASKAN  ENGINEERING  COMMISSION 

DEPARTMENT  OF  THE  INTERIOR 


Organization  Units: 
Classes  of  Employes 


April   I,   1921 


Annual 
Number     Salary 

1.  President  of  the  United  States 

2.  Secretary  of  the  Interior 

Office  of  Washington   Representative 
Senior  Clerk 
Clerk 
Clerk  2 

3.  Alaskan  Engineering  Commission  Proper 

I.  General   Administrative    Offices  ^ 
Chairman  and  Chief  Engineer 
Assistant  Chief  Engineer 
I.  Office  of  Chief  Clerk 
Chief  Clerk 
Special  Inspector 
Estimator 
Clerk 
Stenographer 


Assistant  Engineer  and  Inspector  of 

Construction 
Janitor  and  Mail  Clerk 

2.  Photographer's  Office 

Official  Photographer 

3.  Telegraph  and  Telephone  Department 
Superintendent 

Assistant  Superintendent 
Accountant 


Rate 


2,340 
1,500 
1,320 


15.000 
7.500 

3,600 
2,700 
2,400 
2,400 
2,400 
1,800 
1,320 

3,000 
1,620 

2,400 

3,600 
2,700 
2,280 


2  Detailed  to  Chief  Clerk's  office  of  the  department,  Miscellaneous  divi- 
sion. 

2  The  administrative  stafif  of  the  southern  division  is  merged  with  the 
General  Administrative  StafiF. 


OUTLINE  OF  ORGANIZATION 


69 


Clerk 

Chief  Electrician 
Radio  Electrician 
Foreman 


Chief  Telegraph  Operator 
Operator  in  Charge 
Telephone  and  Telegraph  Operator 
Telegraph  Operator 
2.  Southern  Division 

I.  Transportation   Department 
Trainmaster 
Dispatcher 
Station  Agent 


Clerk 


Warehouseman 

Checker 

Cold  Storage  Operator 

Mail   Clerk 

Mail  Carrier 

2.  Mechanical   Department 

Master  Mechanic 

Traveling   Engineer 

Accountant 

Clerk 

Draftsman 

General  Foreman 

Foreman   Machine   Shops 

Foreman 

Foreman  Car  Repair 

Car  Inspector 

Hostler 

3.  Dock   Department 

Receiving  and  Forwarding  Agent 
Commercial    Freight    Agent 
Clerk 

Timekeeper 
Foreman 

Checker 


Wharfinger 
4.  Townsite  Department 


2,100 
1,980 
3,000 
2,220 
2,700 
2,460 
2,400 
2,280 
2,280 
1,980 
1,920 


3,600 
3,000 
2,160 
1,980 
1,800 
2,100 
1,860 
1,680 
1,860 
1,680 
2,160 
2,700 
2,400 
1,650 

3,600 
3,000 
3,060 
2,700 
1,680 
1,500 
2,280 
2,700 
2,860 
2,400 
2,700 
2,220 
1,920 

2,700 

2,340 
2,160 
1,920 
2,160 
2,340 
2,160 
2,160 
1,980 
2,220 


70        ALASKAN  ENGINEERING  COMMISSION 


7- 


8. 


10. 


Acting  Manager                                      I 

2,i6o 

Stenographer                                             I 

2,040 

Clerk                                                         I 

1,800 

Fire  Chief                                                i 

2,280 

Foreman                                                      i 

2,160 

Drafting  Department 

Chief  Draftsman                                    I 

3,000 

Draftsman                                                  i 

2,700 

Hospital  Department 

Chief  Surgeon                                         i 

4,200 

Surgeon                                                      I 

2,400 

Assistant  Surgeon                                   I 

3,000 

"            "                                        4 

2,160 

Surgeon   Assistant                                  i 

1,980 

Field   Surgeon                                           i 

3,000 

Steward                                                    i 

2,700 

Matron                                                      I 

2,160 

Nurse                                                        3 

1,860 

a                                                                                                       J 

1,440 

Accountant                                               i 

2,400 

Clerk                                                         I 

1,800 

Disbursing  Office 

Special  Disbursing  Agent                     I 

3,600 

Timekeeper                                              I 

3,000 

a                                                                                       J 

2,160 

Clerk                                                         I 

1,740 

"                                                                                                 T 

1,500 

«                                                                                                 J 

1,380 

Labor   Department 

Employment  Clerk                                   I 

2,700 

Clerk                                                         I 

2,400 

2 

1,800 

Mail    Carrier                                           i 

1,800 

Mining  Department 

Supervisor  of  Coal  Mining                   I 

9,000 

Accountant                                                 I 

2,580 

Storekeeper                                              i 

2,220 

Clerk                                                           3 

2,040 

Stenographer                                           I 

1,800 

Assistant  Engineer                                 I 

3,000 

Mine  Surveyor                                         2 

2,700 

Instrumentman                                          I 

2,100 

Mine  Foreman                                        I 

3.240 

1(                                     i<                                                                                                                                            y 

3,000 

Foreman                                                   I 

2,340 

"                                                                                                 T 

2,100 

Shift  Boss                                               3 

3,000 

Carpenter  Foreman                                2 

2,700 

Warehouseman                                          I 

1,800 

Maintenance  and  Construction 

Engineer  Maintenance  and  Construction 

and  Maintenance  of  Way                 i 

5,000 

OUTLINE  OF  ORGANIZATION  71 


Assistant  Bridge  Engineer 

I 

3,600 

Bridge    Draftsman 

I 

3,000 

Superintendents    of    Construction 

2 

4,200 

Assistant    Superintendent    of    Con 

- 

struction 

I 

2,700 

Assistant   Engineer 

2 

3,300 

Resident  Engineer 

5 

2,700 

a                     ti 

I 

2,520 

«                     « 

2 

2,460 

«                     « 

I 

2,280 

Estimator 

I 

2,580 

Instrumentman 

10 

2,100 

iC 

I 

1,860 

<< 

I 

1,800 

Rodman 

I 

1,740 

Chainman 

I 

1,620 

(( 

I 

1,440 

Chief  Clerk 

I 

2,700 

Camp  Auditor 

I 

2,400 

Clerk 

2 

2,400 

it 

I 

2,280 

<t 

2 

1,980 

Timekeeper 

10 

2,160 

ti 

3 

2,040 

It 

I 

1,980 

Assistant  Timekeeper 

7 

1,860 

it              it 

2 

1,680 

tt              it 

I 

1,440 

Warehouseman 

I 

2,160 

Foreman 

9 

2,700 

« 

I 

2,640 

it 

I 

2,550 

t€ 

4 

2,520 

tt 

I 

2,460 

tt 

3 

2,400 

tt 

I 

2,340 

tt 

4 

2,280 

tt 

I 

2,160 

Assistant  Foreman 

I 

2,280 

Steam  Shovel  Foreman 

I 

2,700 

Camp  Foreman 

I 

1,980 

Crane    Foreman 

I 

1,920 

Section    Foreman 

12 

2,160 

II  Maintenance  of  Way 

Resident  Engineer 

I 

2,280 

Water  Service  Engineer 

I 

3,000 

Roadmaster 

I 

3,000 

Instrumentman 

6 

2,100 

it 

3 

1,860 

Chainman 

I 

1,620 

Clerk 

I 

2,400 

it 

2 

1,920 

72 


ALASKAN  ENGINEERING  COMMISSION 


« 

1,800 

(( 

1,620 

« 

960 

Stenographer 

1,740 

Warehouseman 

2,040 

Veterinary  Surgeon 

2,460 

Timekeeper 

7 

2,160 

a 

I 

2,100 

(( 

4 

2,040 

(I 

2 

1,980 

Assistant  Timekeeper 

4 

1,860 

it                      a 

2 

1,680 

General  Foreman 

I 

3.000 

Foreman 

12 

2,700 

a 

5 

2,520 

i( 

2 

2,460 

tt 

5 

2,400 

tt 

9 

2,280 

tt 

5 

2,220 

tt 

3 

2,160 

tt 

.  2 

1 ,980 

<( 

I 

1,800 

Assistant  Foreman 

I 

2,160 

Crane   Foreman 

I 

1,920 

Section  Foreman 

35 

2,160 

a                     a 

5 

1,980 

Northern  Division 

1.  Office  of  Engineer  in  Charge 

Engineer  in  Charge 

6,000 

Secretary    and    File    Clerk 

2,340 

2.  Accounting  Department 

Chief   Accountant 

3.240 

Secretary  and  File  Clerk 

2,340 

Accountant 

2,520 

Clerk 

2,220 

«< 

1,920 

<t 

3 

1,800 

Shop   Clerk 

2,040 

a              a 

2,340 

Stenographer  Clerk 

1,980 

3.  Time  Keeping  Department 

Chief  Timekeeper 

2.940 

District  Timekeeper 

2,580 

Timkeeper   and   Station   Agent 

2,340 

Timekeeper 

2,100 

ii 

2,040 

3 

1,920 

Clerk 

2,400 
1,920 

1,800 

4.  Disbursing  Agent's  Office 
Special   Disbursing  Agent 


3,140 


OUTLINE  OF  ORGANIZATION 


73 


Assistant  Disbursing  Agent  i 

5.  Telegraph  and  Telephone  Department 
Wire    Chief  I 

Telegraph    Operator  I 


Hospital   Department 

Assistant  Surgeon 

Surgeon  Assistant 

Matron 

Nurse 
Store  Department 

General    Storekeeper 

Receiving   and    Forwarding   Agent 

Storekeeper 

Timekeeper  and  Stockkeeper 

Property  Clerk 

Clerk 


I 
2 


« 


Stenographer 
Head  Checker 
Checker 

8.  Mess  House   Department 

Mess   Clerk 

9.  Transportation   Department 

Superintendent  of  Transportation 
Agent    and    Clerk 
Station  Agent  and  Clerk 
Station    Agent 

10.  Townsite  Department 

Townsite    Manager 
Fire    Chief 

11.  Mail  Service 

Superintendent  of  Mail  Service 
Special   Mail  Carrier 

12.  Maintenance  and  Operation  Tanana 

Valley   and    Coldstream 
Assistant  Superintendent 
Assistant    Engineer 
Resident   Engineer 
Intrumentmen 

Rodman 
Chainman 
Draftsman 
Estimator 
4.   Supply  Division 
I.  General  Office 

Engineer  in  Charge 


4 

5 

3 
I 

I 

I 

I 


2,100 

2,640 
2,220 
1,920 
1,440 

3,120 
1,800 
1,560 
1,380 

3.240 
2,760 
2,460 
1,800 
2,280 
2,100 
2,040 
1,980 
1,800 
1,620 
1,980 
2,160 
2,100 

1,360 

2,880 
2,640 
2,400 

2,340 

2,640 
2,340 

4,200 
2,040 


3,600 
3,120 
2,760 
2,220 
2,160 
1,830 
1,770 
2,580 
1,830 


6,000 


74 


ALASKAN  ENGINEERING  COMMISSION 


Chief  Clerk 

2,700 

Auditor 

2,700 

Accountant 

2,100 

Checker 

1,980 

Clerk 

2,100 

ti 

2,040 

tt 

3 

1,980 

<t 

1,800 

Stock  Clerk 

1,620 

«         (( 

1,440 

tt        tt 

1,320 

Foreman 

3-750 

Stenographer 

1,800 

u 

1,440 

Timekeeper 

1,740 

2.  Stores  Department 

General    Storekeeper 

3.300 

Property  Accountant 

2,220 

Accountant 

2,520 

i( 

2,100 

Receiving  and   Forwarding  Clerk 

3.000 

Receiving   Clerk 

1,920 

District  Storekeeper 

2,400 

Storekeepers 

2 

2,280 

Assistant  Storekeeper 

2,100 

Timekeeper 

2,160 

Property  Clerk 

2,160 

Clerk 

2,400 

<t 

3 

2,100 

tt 

2 

1,980 

tt 

2 

1,920 

tt 

3 

1,800 

tt 

3 

1,500 

Stenographer 

I 

1,440 

a 

I 

1.320 

Warehouseman    Foreman 

I 

2,160 

((                (( 

I 

2,040 

«                tt 

I 

1,860 

tt                tt 

3 

1,800 

tt                tt 

2 

1,740 

tc                           tt 

I 

1,680 

Foreman 

I 

2,280 

Sub-Foreman 

I 

1,980 

Checker 

I 

1,980 

(* 

I 

1,800 

3.  Material  Yards 

Foreman 

I 

2,220 

Crane   Engineer 

I 

2,370 

Crane  Foremen 

6 

1,920 

Special  Teamster 

I 

2,160 

Purchasing   Division    (Seattle) 

I.  General  Office 

OUTLINE  OF  ORGANIZATION 


75 


General  Purchasing  Agent                    ] 

[                            5.000 

Chief   Clerk                                               ] 

[                            2,500 

Secretary                                                  ] 

[                            1 ,800 

Checker   and   Warehouseman               ] 

[                            1.780 

Emplovment    Agent                                ] 

[                            2,400 

File   Clerk                                                ] 

[                            1,400 

Lumber   Checker                                     ] 

[                            1,500 

Messenger                                                ] 

[                               900 

Stenographer                                           ] 

[                            1 ,600 

"                                                                          2                                       1,200 

Clerk                                                         ] 

[                            1,980 

Telephone  Operator                                 i 

240 

2.  Office  of   Special  Disbursing  Agent 

Special  Disbursing  Agent                      ] 

[                            3.300 

Chief  Clerk                                             ] 

[                            2,100 

Stenographer                                             ] 

[                            1,320 

6.  Accounting  Division 

I.  General 

Examiner  of  Accounts  and  Legal 

Adviser                                                   ] 

[                            5,000 

Chief    Accountant                                  ] 

[                            3,600 

Accountant                                               ] 

[                            3,000 

a                                                                                             ^ 

[                            2,520 

"                                                                                             1 

[                            2,400 

<(                                                                                              . 

[                            2,280 

«                                                                                              . 

[                            2,160 

u 

:                         2,100 

Clerk                                                         ] 

[                         2,400 

"                                                              1 

:                         1,980 

"                                                              1 

[                         1,500 

((                                                             . 

[                         1,380 

«                                                            .- 

!                         1,320 

2.  Auditor  of  Station   Agents'  Accounts 

Auditor  of  Station  Accounts               i 

[                         3,000 

Clerk                                                         ] 

[                         1,980 

3.  Bookkeeping 

Accountant                                               ] 

t                         3.000 

4.  Coupon   Accountant                                    ] 

[                         2,400 

5.  Division   Camp  Auditors 

Accountant                                               ] 

:                          2,700 

Division  Camp  Auditor                        ] 

2,640 

«          <(          «                                  . 

[                          2,520 

APPENDIX  2 

-    CLASSIFICATION  OF  ACTIVITIES 

Explanatory  Note 

The  Classifications  of  Activities  have  for  their  purpose  to 
list  and  classify  in  all  practicable  detail  the  specific  activities 
engaged  in  by  the  several  services  of  the  national  government. 
Such  statements  are  of  value  from  a  number  of  standpoints. 
They  furnish,  in  the  first  place,  the  most  effective  showing  that 
can  be  made  in  brief  compass  of  the  character  of  work  per- 
formed by  the  service  to  which  they  relate.  Secondly,  they 
lay  the  basis  for  a  system  of  accounting  and  reporting  that 
will  permit  the  showing  of  total  expenditures  classified  accord- 
ing to  activities.  Finally,  taken  collectively,  they  make  pos- 
sible the  preparation  of  a  general  or  consolidated  statement  of 
the  activites  of  the  government  as  a  whole.  Such  a  statement 
will  reveal  in  detail,  not  only  what  the  government  is  doing, 
but  the  services  in  which  the  work  is  being  performed.  For 
example,  one  class  of  activities  that  would  probably  appear  in 
such  a  classification  is  that  of  "scientific  research."  A  sub- 
head under  this  class  w^ould  be  "chemical  research."  Under 
this  head  would  appear  the  specific  lines  of  investigation  under 
way  and  the  services  in  which  they  were  being  prosecuted. 
It  is  hardly  necessary  to  point  out  the  value  of  such  informa- 
tion in  planning  for  future  w^ork  and  in  considering  the  prob- 
lem of  the  better  distribution  and  coordination  of  the  work 
of  the  government.  The  Institute  contemplates  attempt- 
ing such  a  general  listing  and  classification  of  the  activities 
of  the  government  upon  the  completion  of  the  present 
series. 

76 


CLASSIFICATION  OF  ACTIVITIES  yj 


Classification  of  Activities 

This  classification  of  activities  is  an  outline  of  the  various 
activities  which  have  been  carried  on  by  the  commission  from 
its  appointment  to  date.  In  this  case,  a  service  is  being  con- 
sidered that  is  temporary  and  meant  for  the  execution  of  a 
definitive  project. 

1.  Activities  preceding  construction 

1.  General  investigative  activities 

1.  A  general  survey  of  the  alternative  routes 

2.  Examination  of  the  three  existing  Alaskan  rail- 
roads which  had  a  direct  bearing  upon  the  routes  to 
be  considered 

3.  Investigation  of  the  resources  of  the  country  trib- 
utary to  the  proposed  railroads  in  order  to  obtain 
some  measure  of  the  possible  traffic 

4.  Examination  of  the  merits  of  various  harbors  in 
Alaska  as  locations  for  railroad  terminals 

5.  Preparation  of  cost  estimates  including  a  valua- 
tion of  the  Alaska  Northern  Railroad 

2.  The  placing  and  staking  of  the  final  location  for  the 
j"outes 

2.  Construction  activities 

1.  Construction  of  the  railroad 

2.  Construction  of  terminal  facilities 

3.  Construction  of  telegraph  and  telephone  system 

4.  Construction  of  wagon  roads 

3.  Activities  supplementary  to  construction 

1.  Purchase  and  rehabilitation  of  the  Alaska  North- 
em  Railroad 

2.  Purchase  and  rehabilitation  of  the  Tanana  Valley 
Railroad 

4.  Operating  activities 

1.  Operation  of  railroad 

2.  Operation  of  coal  mines 


78        ALASKAN  ENGINEERING  COMMISSION 

3.  Operation  of  telegraph  and  telephone  lines 

4.  Operation  of  docks 

5.  Operation  of  power  plant 

6.  Operation  of  miscellaneous  services 

5.  Maintenance 

6.  Activities   aimed  to  create  and  encourage  traffic   for 
the  railroad 

1.  Establishment,  development  and  management  of 
townsites 

2.  Dissemination    of    information    on    resources   of 
tributary  country 

3.  Effecting    cooperation    between     farmers,     mer- 
chants, and  miners 

4.  Administration  of  coal  land  leases 


APPENDIX  3 
PUBLICATIONS 

Alaska  Railroad  Record  (Weekly.)  This  paper  was  pub- 
lished as  the  official  publication  of  the  Alaskan  Engineering 
Commission  from  November  14,  1916,  to  July  i,  1920,  after 
which  date  it  was  discontinued  by  order  of  the  Secretary  of  the 
Interior.  The  editor  was  the  manager  of  the  Land  and  In- 
dustrial Department,  and  the  printing  was  done  at  Anchorage. 
The  general  aim  of  the  paper  was  to  give  to  the  employees 
and  to  the  general  public  weekly  reports  of  the  progress  of 
construction  and  operation,  but  its  prime  value  was  in  improv- 
ing efficiency  and  establishing  morale  among  a  force  scat- 
tered over  a  distance  of  471  miles.  It  furnished  also  a  con- 
venient medium  for  distribution  of  official  orders  and  circu- 
lars. The  subscription  price  was  $1  per  year,  but  the  paper 
was  issued  free  to  Government  departments,  representatives 
of  foreign  governments,  public  libraries,  and  employees  of  the 
Alaskan  Engineering  Commission.  Out  of  1125  copies 
printed  in  July,  19 19,  there  were  only  thirty  paid  subscrip- 
tions, while  160  were  "free  public"  and  935  "official." 

Annual  Reports.  Only  two  annual  reports  have  been 
printed  to  date,  one  covering  the  period  from  March  12,  1914, 
to  December  31,  191 5,  with  maps  in  portfolio  (64th  Con- 
gress, 1st  Session,  House  Doc.  610,  Part  2)  and  one  for  the 
year  1916  (64th  Congresss,  2nd  Session,  Senate  Doc.  741). 
Each  of  these  reports,  illustrated  with  photographs  of  scenes 
along  the  line  of  the  railroad  and  sections  of  the  railroad 
itself,  includes  a  description  of  the  work  of  the  commission 
for  the  period  covered,  and  an  account  of  the  general  develop- 
ment of  the  territory  tributary  to  the  railroad  during  the  year. 
The  appendices  include  financial  and  cost  statements,  maps, 

79 


8o         ALASKAN  ENGINEERING  COMMISSION 

and  statistics  on  Alaskan  resources,  trade,  climate,  etc. 
Copies  of  the  1914-15  report  may  be  obtained  from  the  Super- 
intendent of  Documents  at  75  cents  for  both  the  text  and 
maps.     No  copies  of  the  19 16  report  are  available. 

The  reports  for  the  }^ears  19 18  and  19 19  are  available  in 
typewritten  form  at  the  Department  of  the  Interior,  and  a 
copy  of  the  191 7  report  (also  in  typewritten  form)  is  avail- 
able in  the  files  of  the  Secretary  of  the  Senate.  No  provision 
was  made  by  Congress  for  publication  of  these  reports  owing 
to  the  necessity  for  economy  in  printing. 


APPENDIX  4     ■ 

LAWS 

(A)  Index  to  Laws  and  Important  Executive 
Orders  and  Letters 

Authorisation 

President  of  United   States 

Authorized    to    locate,    construct,    and    operate 

railroads  in  the  Territory  of  Alaska   ....38    Stat.    L.,    305 

Authority  to  construct  and  operate  telegraph 
and  telephone  lines,  to  withdraw  and  dis- 
pose of  public  lands,  etc 38    Stat.    L.,    305 

Secretary  of  the  Interior 

Directed  to  proceed  with  survey  of  routes  . . .  .Letter  of  May  2, 

1914 

Directed  to  proceed  with  construction Letter     of     Apr. 

10,  1915 

Alaskan  Eng-ineering  Commission 

Authorized  to  begin  work  of  survey   Letter  of  May  8," 

1914 

Authorized  to  do  construction  under  super- 
vision of  Secretary  of  Interior   Letters    of   April 

10,    and    April 

30,   1915 
Isthmian  Canal  Commission 

Authorized  to  deliver  property  and  equipment 
no    longer   needed   at    Panama   to   Alaskan 

Engineering  Commission   38    Stat.    L.,    305 

and    Letter    of 
Personnel  Apr.   ;o,   1915 

President  of  United  States 

To    employ    all    necessary    officers,    agents,    or 

agencies  and  assign  duties  to  them   38    Stat.    L.,   30=; 

8;  • 


82         ALASKAN  ENGINEERING  COMMISSION 

May  detail  officers  in  the  Engineer  Corps  in 
the  Army  and  Navy  to  perform  service  in 
Alaska  38  Stat.  L.,  305 

To  detail   Lt.   Mears  to   service   in   connection 

with    proposed    railroad    38    Stat.    L.,    772 

May   fix  compensation   of   officers,   agents,   and 

employees     38    Stat.    L.,    305 

May  transfer  administration  of  Employees' 
Compensation  Act  so  far  as  Commission's 
employees  are  concerned  to  Chairman  of 
Commission 39    Stat.    L.,   750 

Urges  system  of  compensation  for  injuries  . . .  .Letter     of     Apr. 

10,   1915 

Alaskan  Engineering  Commission 

Selection  of  its  employees   Letters  of  May  8, 

1914,  and  April 
,     .      ,  10,   1915 

Record    of    appointments    to    be    submitted    to 

Secretary   of   Interior    Letter  of  May  8, 

1914 
Chairman  of  Commission  to  fix  salaries  of  de- 
partment   heads    Letter     of     Apr. 

10,  1915 
Procedure  in  fixing  salaries  of  officers  and  em- 
ployees of  departments Letter     of     Apr. 

10,  1915 

Commission's     employees     not     eligible     ^o'' J  4°   ^g^*'  ^■'  ^^4. 
-additional     compensation"    |^^    ^7^^     ^^   ^g^ 

Activities 

Location,  construction,  operation  of  railroads  .38    Stat.    L.,    305 


Telephone   and  Telegraph   Lines    38    Stat.    L.,    305 

^38    Stat.    L.^  305 
Townsites,   withdrawal   of  public  lands,   etc 


Executive    Order 
2214,     June      19, 

I1915 


38    Stat.    L.,   305 
Purchase  of  necessary  property,  terminals-  rail- 
roads, etc , Letters    of    Apr. 

10  and  15,  1915 


LAWS  83 

Sale  of  lots    J  Exec,  of  Order 

\    June   19,   1915 

Construction     of     docks,     terminals,     facilities, 

wharves,    etc 38    Stat.    L.,   305 

Purchase  of  Alaska  Northern  Railroad   Letters    of    Apr. 

10       and       15, 

•      •  ^915 

Urganicatton 

General   Control   and   administration   by   Pres- 
ident     38    Stat.    L.,   305 

Secretary  of  Interior 

To  appoint  Chairman  of  Commission   Letter     of     Apr. 

10,  1915 

To  supervise  construction  by  Commission    ....  Letter     of     Apr. 

10,  1915 

May  grant  leave  of  absence  to  Chairman  ....  Letter     of     Apr. 

10,  1915 

Alaskan    Engineering    Commission 

Duties  of  Chairman  and  Commissioners   Letter     of     Apr. 

10,  1915 

Chairman    to    create    departments   and    appoint 

heads    Letter     of     Apr. 

10,  1915 

Department  heads  to  report  to  Commissioner  .  .Letter     of     Apr. 

10,  1915 

Chairman  may  grant  leave  of  absenses  to  Com- 
missioners     Letter     of     Apr. 

10,  191S 
Commission  to  cooperate  with  duly  constituted 

authorities   in   Alaska    Letter     of     Apr. 

10,  1915 
Expenditures    and    Appropriations 

Cost  of  Project 

Not  to  exceed  $35,000,000 38    Stat.    L.,    305 

Additional  $17,000,000  authorized  to  be  appro- 
priated     41    Stat.    L.,   293 


84        ALASKAN  ENGINEERING  COMMISSION 

Miscellaneous  Receipts 

From  sale  of  lands,  coal,  etc.,  to  be  paid  into 

Treasury    38    Stat.    L.,    305 

Disposition    of    net    profits    from    operation    of 

government  mines,  royalties,  etc 38    Stat.    L.,    744 

Proceeds  from  sale  of  material,  condemned 
property,  etc.,  to  be  covered  into  appropria- 
tion     39   Stat.    L.,    306 

Not  to  exceed  50  per  cent  of  receipts  from  lot 
sales  to  be  applied  to  reimbursement  of 
Commission  for  town  site  improvement  ex- 
penditures     40  Stat.  L.,  19 

Sale  of  articles  and  supplies  to  employees  ....38  Stat.  L.,   1148 

Expenditures     under     empoyees'     compensation 

act   reimbursable    39    Stat.    L.,   750 

Procedure     in    making    contracts    for    construc- 
tion and  for  purchase  of  supplies Letters    of    Apr, 

10       and       30- 

Procedure  in  sales  of  lots Executive    Order 

2214,   June    19, 

1915 
(B)  Compilation  of  Laws 

1914 — Act  of  March  12,  1914  (38  Stat.  L.,  305) — An  Act  To 
authorize  the  President  of  the  United  States  to  lo- 
cate, construct,  and  operate  railroads  in  the  Terri- 
tory of  Alaska,  and  for  other  purposes,  as  amended 
October  18,  1919  (41   Stat.  L.,  293). 

[Sec.  i].  That  the  President  of  the  United  States  is  hereby  em- 
powered, authorized,  and  directed  to  adopt  and  use  a  name  by  which  to 
designate  the  railroad  or  railroads  and  properties  to  be  located, 
owned,  acquired,  or  operated  under  the  authority  of  this  act ;  to 
employ  such  officers,  agents,  or  agencies,  in  his  discretion,  as  may 
be  necessary  to  enable  him  to  carry  out  the  purposes  of  this  act ;  to 
authorize  and  require  such  officers,  agents,  or  agencies  to  perform 
any  or  all  of  the  duties  imposed  upon  him  by  the  terms  of  this  act; 
to  detail  and  require  any  officer  or  officers  in  the  Engineer  Corps 
in  the  Army  or  Navy  to  perform  service  under  this  act ;  to  fix  the 
compensation  of  all  officers,  agents,  or  employees  appointed  or  desig- 
nated by  him;  to  designate  and  cause  to  be  located  a  route  or  routes 
for  a  line  or  lines  of  railroad  in  the  Territory  of  Alaska  not  to  exceed 
in  the  aggregate  one  thousand  miles,  to  be  so  located  as  to  connect 


LAWS  85 

one  or  more  of  the  open  Pacific  Ocean  harbors  on  the  southern  coast 
of  Alaska  with  the  naviagable  waters  in  the  interior  of  Alaska,  and 
with  a  coal  field  or  fields  so  as  best  to  aid  in  the  development  of  the 
agricultural  and  mineral  or  other  resources  of  Alaska,  and  the  settle- 
ment of  the  public  lands  therein,  and  so  as  to  provide  transportation 
of  coal  for  the  Army  and  Navy,  transportation  of  troops,  arms,  muni- 
tions of  war,  the  mails,  and  for  other  governmental  and  public  uses, 
and  for  the  transportation  of  passengers  and  property;  to  construct 
and  build  a  railroad  or  railroads  along  such  route  or  routes  as  he 
may  so  designate  and  locate  with  the  necessary  branch  lines,  feeders, 
sidings,  switches,  and  spurs;  to  purchase  or  otherwise  acquire  all 
real  and  personal  property  necessary  to  carry  out  the  purposes  of 
this  act;  to  exercise  the  power  of  eminent  domain  in  acquiring 
property  for  such  use  which  use  is  hereby  declared  to  be  a  public 
use,  by  condemnation  in  the  courts  of  Alaska  in  accordance  with  the 
laws  now  or  hereafter  in  force  there ;  to  acquire  rights  of  way, 
terminal  grounds,  and  all  other  rights ;  to  purchase  or  otherwise 
acquire  all  necessary  equipment  for  the  construction  and  operation 
of  such  railroad  or  railroads;  to  build  or  otherwise  acquire  docks, 
wharves,  terminal  facilities;  and  all  structures  needed  for  the  equip- 
ment and  operation  of  such  railroad  or  railroads;  to  fix,  change,  or 
modify  rates  for  the  transportation  of  passengers  and  property, 
which  rates  shall  be  equal  and  uniform,  but  no  free  transportation 
or  passes  shall  be  permitted  except  that  the  provisions  of  the  inter- 
state commerce  laws  relating  to  the  transportation  of  employees  and 
their  families  shall  be  in  force  as  to  the  lines  constructed  under  this 
act ;  to  receive  compensation  for  the  transportation  of  passengers 
and  property,  and  to  perform  generally  all  the  usual  duties  of  a 
common  carrier  by  railroad;  to  make  and  establish  rules  and  regula- 
tions for  the  control  and  operation  of  said  railroad  or  railroads; 
in  his  discretion,  to  lease  the  said  railroad  or  railroads,  or  any 
porton  thereof,  including  telegraph  and  telephone  lines,  after  com- 
pletion under  such  terms  as  he  may  deem  proper,  but  no  lease  shall 
be  for  a  longer  period  than  twenty  years,  or  in  the  event  of  failure 
to  lease,  to  operate  the  same  until  the  further  action  of  Congress: 
Provided,  That  if  said  railroad  or  railroads  including  telegraph  and 
telephone  lines,  are  leased  under  the  authority  herein  given,  then 
and  in  that  event  they  shall  be  operated  under  the  jurisdiction  and 
control  of  the  provisions  of  the  interstate  commerce  laws;  to  pur- 
chase, condemn,  or  otherwise  acquire  upon  such  terms  as  he  may 
deem  proper  any  other  line  or  lines  of  railroad  in  Alaska  which 
may  be  necessary  to  complete  the  construction  of  the  line  or  lines 
of  railroad  designated  or  located  by  him:  Provided,  That  the  price 
to  be  paid  in  case  of  purchase  shall  in  no  case  exceed  the  actual 
physical  value  of  the  railroad;  to  make  contracts  or  agreements  with 
any  railroad  or  steamship  company  or  vessel  owner  for  joint  trans- 
portation of  passengers  or  property  over  the  road  or  roads  herein 
povided  for,  and  such  railroad  or  steamship  line  or  by  such  vessel, 
and  to  make  such  other  contracts  as  may  be  necessary  to  carry  out 
any  6i  the  purposes  of  this  act;  to  utilize  in  carrying  on  the  work 
herein  provided  for  any  and  all  machinery,  equipment,  instruments, 
material,   and    other    property    of    any    sort    whatsoever    used    or 


86        ALASKAN  ENGINEERING  COMMISSION 

acquired  in  connection  with  the  construction  of  the  Panama  Canal, 
so  far  and  as  rapidly  as  the  same  is  no  longer  needed  at  Panama, 
and  the  Isthmian  Canal  Commission  is  hereby  authorized  to  deliver 
said  property  to  such  officers  or  persons  as  the  President  may 
designate,  an^  to  take  credit  therefor  at  such  percentage  of  its 
original  cost  as  the  President  may  approve,  but  this  amount  shall 
not  be  charged  against  the  fund  provided  for  in  this  act. 

The  authority  herein  granted  shall  include  the  power  to  construct, 
maintain,  and  operate  telegraph  and  telephone  lines  so  far  as  they 
may  be  necessary  or  convenient  in  the  construction  and  operation 
of  the  railroad  or  railroads  as  herein  authorized  and  they  shall 
perform  generally  all  the  usual  duties  of  telegraph  and  telephone 
lines  for  hire. 

That  it  is  the  intent  and  purpose  of  Congress  through  this  act 
to  authorize  and  empower  the  President  of  the  United  States,  and 
he  is  hereby  fully  authorized  and  empowered,  through  such  officers, 
agents,  or  agencies  as  he  may  appoint  or  employ  to  do  all  necessary 
acts  and  things  in  addition  to  those  specially  authorized  in  this  act 
to  enable  him  to  accomplish  the  purposes  and  objects  of  this  act. 

The  President  is  hereby  authorized  to  withdraw,  locate,  and  dis- 
pose of,  under  such  rules  and  regulations  as  he  may  prescribe,  such 
area  or  areas  of  the  public  domain  along  the  line  or  lines  of  such 
proposed  railroad  or  railroads  for  town-site  purposes  as  he  may 
from   time  to   time  designate. 

Terminal  and  station  grounds  and  rights  of  way  through  the 
lands  of  the  United  States  in  the  Territory  of  Alaska  are  hereby 
granted  for  the  construction  of  railroads,  telegraph  and  telephone 
lines  authorized  by  this  act,  and  in  all  patents  for  lands  hereafter 
taken  up,  entered  or  located  in  the  Territory  of  Alaska  there  shall 
be  expressed  that  there  is  reserved  to  the  United  States  a  right 
of  way  for  the  construction  of  railroads,  telegraph  and  telephone 
lines  to  the  extent  of  one  hundred  feet  on  either  side  of  the  center 
line  of  any  such  road  and  twenty-five  feet  on  either  side  of  the 
center  line  of  any  such  telegraph  or  telephone  lines,  and  the  Pres- 
ident may,  in  such  manner  as  he  deems  advisable,  make  reserva- 
tion of  such  lands  as  are  or  may  be  useful  for  furnishing  materials 
for  construction  and  for  stations,  terminals,  docks,  and  for  such 
other  purposes  in  connection  with  the  construction  and  operation 
of  such  railroad  lines  as  he  may  deem  necessary  and  desirable. 

Sec.  2.  That  the  cost  of  the  work  authorized  by  this  act  shall  not 
exceed  $35,000,000,  and  in  executing  the  authority  granted  by  this 
act  the  President  shall  not  expend  nor  obligate  the  United  States  to 
expend  more  than  the  said  sum ;  and  there  is  hereby  appropriated, 
out  of  any  money  in  the  Treasury  not  otherwise  appropriated,  the 
sum  of  $1,000,000  to  be  used  for  carrying  out  the  provisions  of  this 
act,  to  continue  available  until  expended. 

Provided,  That  in  order  to  eoDiplete  on  or  before  December  j/, 
1922,  the  construction  and  equipment  of  tlic  railroad  between  Seward 
and  Fairbanks,  together  with  7iecessary  sidings,  spurs,  and  lateral 
branches,  the  additional  sum  of  $i/,ooo,ooo  is  hereby  authorised  to 
be  appropriated,  to  be  immediately  and  continuouosly  available  until 
expended.     [Italicized  as  amended]. 


LAWS  87 

Sec.  3.  That  all  moneys  derived  from  the  lease,  sale,  or  disposal 
of  any  of  the  public  lands,  including  town  sites,  in  Alaska,  or  the 
coal  or  mineral  therein  contained,  or  the  timber  thereon,  and  the 
earnings  of  said  railroad  or  railroads,  together  with  the  earnings  of 
the  telegraph  and  telephone  lines  constructed  under  this  act,  above 
maintenance  charges  and  operating  expenses,  shall  be  paid  into  the 
Treasury  of  the  United  States  as  other  miscellaneous  receipts  are 
paid,  and  a  separate  account  thereof  shall  be  kept  and  annually  re- 
ported to  Congress. 

Sec,  4.  That  the  officers,  agents,  or  agencies  placed  in  charge  of  the 
work  by  the  President  shall  make  to  the  President  annually,  and  at 
such  other  periods  as  may  be  required  by  the  President  or  by  either 
House  of  Congress,  full  and  complete  reports  of  all  their  acts  and 
doings  and  of  all  moneys  received  and  expended  in  the  construction 
of  said  work  and  in  the  operation  of  said  work  or  works  and  in  the 
performance  of  their  duties  in  connection  therewith.  The  annual 
reports  herein  provided  for  shall  be  by  the  P.'-esident  transmitted  to 
Congress. 

1914 — Joint  Resolution  of  May  13,  1914  (38  Stat.  L.,  'j'jz)  — 
Joint  Resolution  Authorizing  the  President  to  detail 
Lieutenant  F>ederick  Alears  to  service  in  connection 
with  proposed  Alaskan  railroad. 

That  the  President  of  the  United  States  be,  and  he  is  hereby, 
authorized  to  detail  and  require  Lieutenant  Frederick  Mears,  United 
States  Army,  to  perform  service  in  connection  with  the  location  and 
construction  of  the  railroad  or  railroads  in  the  Territory  of  Alaska, 
provided  for  in  Act  of  Congress  approved  March  twelfth,  nineteen 
hundred  and  fourteen. 

1914 — Act  of  October  20,  1914  (38  Stat.  L.,  744) — An  Act 
To  provide  for  the  leasing  of  coal  lands  in  the  Ter- 
ritory of  Alaska,  and  for  other  purposes. 

All  net  profits  from  operation  of  Government  mines,  and  all 
royalties  and  rentals  under  leases  as  herein  provided,  shall  be  de- 
posited in  the  Treasury  of  the  United  States  in  a  separate  and 
distinct  fund  to  be  applied  to  the  reimbursement  of  the  Government 
of  the  United  States  on  account  of  any  expenditures  made  in  the 
construction  of  railroads  in  Alaska,  and  the  excess  shall  be  de- 
posited in  the  fund  known  as  The  Alaska  Fund,  established  by  the 
A.ct  of  Congress  of  January  twenty-seventh,  nineteen  hundred  and 
five,  to  be  expended  as  provided  in  said  last-mentioned  Act. 

1915 — Act  of  March  4,  1915  (38  Stat.  L.,  1148) — An  Act 
Making  appropriations  to  supply  deficiencies  in  ap- 
propriations for  the  fiscal  year  nineteen  hundred  and 
fifteen  and  for  prior  years,  and  for  other  purposes. 


88        ALASKAN  ENGINEERING  COMMISSION 


Alaska  Engineering  Commission :  In  the  execution  of  the  work 
called  for  under  the  Act  of  March  twelfth,  nineteen  hundred  and 
fourteen,  entitled  "An  Act  to  authorize  the  President  of  the  United 
States  to  locate,  construct,  and  operate  railroads  in  the  Territory  of 
Alaska,  and  for  other  purposes,"  authority  is  hereby  granted  to  pur- 
chase, until  the  end  of  the  fiscal  year  nineteen  hundred  and  sixteen, 
from  the  appropriations  made  therefor  articles  and  supplies  for 
sale  to  employees,  the  appropriation  to  be  reimbursed  by  the  proceeds 
of  such  sales. ^ 

1916 — Act  of  July  I,  1916  (39  Stat.  L.,  306) — An  Act  Mak- 
ing appropriations  for  sundry  civil  expenses  of  the 
Government  for  the  fiscal  year  ending  June  thir- 
tieth, nineteen  hundred  and  seventeen,  and  for  other 
purposes : 


During  the  fiscal  year  nineteen  hundred  and  seventeen  there  shall 
be  covered  into  the  appropriation  established  from  time  to  time 
under  the  Act  approved  March  twelfth,  nineteen  hundred  and  four- 
teen, entitled,  "An  Act  to  authorize  the  President  of  the  United 
States  to  locate,  construct,  and  operate  railroads  in  the  Territory 
of  Alaska,  and  for  other  purposes,"  the  proceeds  of  the  sale  of 
material  utilized  for  temporary  work  and  structures  in  connection 
with  the  operations  under  said  Act,  as  well  as  the  sales  of  all  other 
condemned  property  which  has  been  purchased  or  constructed  under 
the  provisions  thereof,  also  any  moneys  refunded  in  connection 
with  the  construction  and  operations  under  said  Act,  and  a  report 
hereunder  shall  be  made  to  Congress  at  the  beginning  of  its  next 
session.^ 

Authority  is  granted  to  pay  to  Old  Bettis,  a  native  of  Nenana, 
Alaska,  the  sum  of  $343.50,  out  of  the  appropriation  for  the  Alaska 
Engineering  Commission  in  compensation  for  a  cabin  with  its  con- 
tents consisting  of  traps,  guns,  clothing,  and  other  articles,  which 
were  burned  as  a  result  of  a  fire  running  from  a  smudge  set  by 
parties  of  the  Alaskan  Engineering  Commission  during  the  summer 
of  nineteen  hundred  and  fourteen. 

1916 — Act  of  September  7,  ,1916  (39  Stat.  L.,  750) — An  Act 
To  provide  compensation  for  employees  of  the 
United  States  suffering  injuries  while  in  the  per- 
formance of  their  duties,  and  for  other  purposes. 


{ 


1 


This  clause  has  been  included  in  all  subsequent  appropriation  acts. 


LAWS  89 

Sec.  42.  That  the  President  may,  from  time  to  time,  transfer 
the  administration  of  this  Act  ...  so  far  as  employees  of  the  Alas- 
kan Engineering  Commission  are  concerned  to  the  Chairman  of 
that  commission,  in  which  cases  the  words  "commission"  and  "its" 
wherever  they  appear  in  this  Act  shall,  so  far  as  necessary  to  give 
ciTect  to  such  transfer,  he  read  .  .  .  "chairman  of  the  Alaskan 
Engineering  Commission,"  .  .  .  and  "his";  and  the  expenses  of  med- 
ical examinations  under  sections  twenty-one  and  twenty-two,  and  the 
reasonable  traveling  and  other  expenses  and  loss  of  wages  payable 
to  employees  under  section  twenty-one,  shall  be  paid  out  of  appro- 
priations .  .  .  for  the  Alaskan  Engineering  Commission  instead  of 
out  of  the  appropriation  for  the  work  of  the  commission.  .  .  . 

The  President  may  authorize  the  chairman  of  the  Alaskan  Engi- 
neering Commission  to  pay  the  compensation  provided  by  this  Act, 
including  the  medical,  surgical,  and  hospital  services  and  supplies 
provided  by  section  nine  and  the  transportation  and  burial  expenses 
provided  by  sections  nine  and  eleven,  out  of  the  appropriations  for 
.  .  .  the  Alaskan  Engineering  Commission,  such  appropriations  to 
be  reimbursed  for  such  payments  by  transfer  of  funds  from  the 
employees'  compensation   fund. 

1917 — Act  of  April  17,  1917  (40  Stat.  L.,  19) — An  Act 
Making  appropriations  to  supply  deficiencies  in  ap- 
priations  for  the  fiscal  year  ending  June  30,  19 17, 
and  prior  fiscal  years,  and  for  other  purposes. 

'\-  ^  ^ 

That  until  June  30,  1918.  not  to  exceed  50  per  centum  of  the 
moneys  received  from  the  sale  of  lots  or  tracts  within  any  town 
site  or  townsites  heretofore  or  hereafter  sold  pursuant  to  the  pro- 
visions of  the  act  of  March  12,  1914,  entitled  "An  Act  to  authorize 
the  President  of  the  United  States  to  locate,  construct,  and  operate 
railroads  in  the  Territory  of  Alaska,  and  for  other  purposes,"  may, 
in  the  discretion  of  the  Secreary  of  the  Interior,  be  set  apart  and 
expended  within  the  respective  townsites  in  which  such  lots  or 
tracts  are  sold,  for  the  purpose  of  preparing  the  land  for  occupancy, 
the  construction,  installation,  and  maintenance  of  public  utilities 
and  improvements,  and  the  construction  of  public-school  buildings, 
under  such  terms  and  conditions  as  the  Secretary  of  the  Interior 
may  prescribe,  and  the  moneys  so  set  apart  and  designated  are 
appropriated  for  the  purpose  of  carrying  these  provisions  into  effect; 
Provided,  That  such  moneys  as  may  have  been  heretofore  or  may 
hereafter  be  expended  for  such  purposes  under  and  by  autliority  of 
the  Alaskan  Engineering  Commission  from  the  funds  at  its  disposal 
shall  be  reimbursed  from  the  amount  designated  for  the  purposes 
herein  provided :  Provided,  further,  That  a  report  of  the  expendi- 
tures hereunder  shall  be  made  to  Congress  at  tlie  beginning  of  each 
regular  session. 

1920 — Act  of  May  29,    1920    (41    Stat.   L.,  689) — An  Act 


90         ALASKAN  ENGINEERING  COMMISSION 

Making  appropriations  for  the  legislative,  executive, 
and  judicial  expenses  of  the  Government  for  the 
fiscal  year  ending  June  30,  1921,  and  for  other 
purposes. 


That  all  civilian  employees  of  the  Governments  of  the  United 
States  and  the  District  of  Columbia  who  receive  a  total  of  compensa- 
tion at  the  rate  of  $2500  per  annum  or  less  .  .  .  shall  receive  during 
the  fiscal  year  ending  June  30,  1921,  additional  compensation  at  the 
rate  of  $240  per  annum. 

The  provisions  of  this  section  shall  not  apply  to  ...  emploj'ees 
of  the  Alaskan  Engineering  Commission.- 

(C)  Important  Executive  Orders  and  Letters 

1914 — Letter   of    May   2,    1914 — President    to    Secretary   of 
the  Interior. 

Pursuant  to  the  provisions  of  the  act  approved  March  12.  1914, 
providing  for  the  construction  and  operation  of  railroads  in  the 
Territory  of  Alaska.  I  hereby  direct  you  to  proceed  with  the  survey- 
ing of  routes  for  said  railroads  and  confer  upon  you  the  power  and 
authority  to  do  any  and  all  acts  necessary  thereto. 

19 14 — Letter  of  May  8,   19 14 — Secretary  of  the  Interior  to 
Alaskan  Engineering  Commission. 

Agreeable  to  the  wishes  of  the  President,  and  by  his  direction, 
I  take  this  occasion  to  formally  authorize  the  Alaskan  Engineering 
Commission  to  select  and  appoint  its  assistants  for  the  work  in 
hand,  to  purchase  the  necessary  supplies  and  equipment,  to  order 
travel  and  subsistence  for  all  employees  of  the  commission,  and 
to  proceed  to  the  field  at  the  earliest  practicable  date.  I  desire 
that  a  record  of  appointments  or  employments  made  by  the  com- 
mission be  furnished  this  office,  in  order  that  a  complete  service 
record  may  be  maintained  here. 

1915 — Executive  Order  of  April    10,    1915. 

By  authority  of  an  act  entitled  "An  act  to  authorize  the  President 
of  the  United  States  to  locate,  construct,  and  operate  railroads  in 
the  Territory  of  Alaska,  and  for  other  purposes"  (38  Stat.,  305),  I 
do  now  designate  and  cause  to  be  located  the  following  routes  for 
lines  of  railroad  in  the  Territory  of  Alaska: 

For  a  main  line  of  railroad: 

2  This  clause,  excluding  employees  of  the  Commission  from  benefit 
of  the  "additional  compensation,"  appears  in  two  previous  appro- 
priation acts  also   (40  Stat.  L.,  814,  1267). 


LAWS  91 

Commencing  at  the  town  of  Seward,  on  the  westerly  shore  of 
Resurrection  Bay,  Alaska ;  thence  following  along  said  westerly  shore 
in  a  northerly  direction  to  the  head  of  said  bay ;  thence  following 
up  the  drainage  of  Salmon  Creek  to  a  summit  between  said  drain- 
age and  the  drainage  of  Snow  River;  thence  following  the  drainage 
of  Snow  River  to  Kcnai  Lake ;  thence  continuing  northerly  along 
the  easterly  shore  of  Kenai  Lake,  along  Falls  Creek,  along  the 
shores  of  Lower  and  Upper  Trail  Lake,  and  up  Trail  Creek  to  a 
summit  in  the  Kenai  Mountains  near  mile  45  from  Seward ;  thence 
descending  along  the  drainage  of  Placer  River  to  the  head  of  Turn- 
again  Arm  of  Cook  Inlet ;  thence  following  the  northeasterly  shore 
of  said  Turnagain  Arm  and  crossing  Portage  Creek  and  Twenty- 
Mile  River  to  the  mouth  of  Kern  Creek  near  mile  71  from  Seward; 
thence  in  a  northwesterly  direction  along  the  shore  of  Turnagain 
Arm  to  near  the  mouth  of  Big  Rabbit  Creek;  thence  leaving  Turn- 
again  Arm  and  running  northerly  to  a  summit  in  section  26,  town- 
ship 14,  north  range  3  west,  Seward  meridian ;  thence  running  north- 
easterly to  near  the  head  of  Knik  Arm  of  Cook  Inlet ;  thence  run- 
ning northerl)-  across  the  flats  at  the  head  of  said  arm  and  crossing 
Knik  and  Matanuska  Rivers  to  a  point  ;'i>out  2  miles  north  of  the 
Matanuska  River ;  thence  running  in  a  westerly  and  northwesterly 
direction,  crossing  the  Little  Susitna  River  and  following  along  the 
southwesterly  slopes  of  Bald  Mountain  to  Willow  Creek,  a  tributary 
of  the  Susitna  River ;  thence  in  a  northerly  direction  following 
the  drainage  of  the  Susitna  and  Chulitna  Rivers  to  Broad  Pass, 
situated  in  the  main  Alaska  Range  of  mountains;  thence  crossing 
Broad  Pass  and  entering  the  drainage  of  the  Nenana  River;  thence 
continuing  northward  following  the  drainage  of  the  Nenana  River 
to  the  Tanana  River,  the  total  distance  from  Seward  being  416 
miles,  more  or  less. 

Also  starting  from  a  point  on  the  above-described  line,  situated  2 
miles,  more  or  less,  northerly  from  where  said  line  crosses  the 
Matanuska  River,  and  thence  running  in  an  easterly  direction  fol- 
lowing the  drainage  of  said  Matanuska  River  and  its  tributaries,  a 
distance  of  38  miles,  more  or  less,  to  the  IMatanuska  coal  fields. 

And  in  order  to  complete  the  construction  of  the  lines  so  designated 
and  located,  I  direct  the  Secretary  of  the  Interior  to  purchase  and 
acquire  the  line  of  railroad  known  as  the  Alaska  Northern  Railway, 
and  for  that  purpose  to  execute  and  enter  into  an  agreement  sub- 
stantially in  the  form  hereto  annexed,  which  calls  for  the  payment 
of  a  purchase  price  not  in  excess  of  the  physical  value  of  said 
railway. 

Effective  this  date.  April   10,  1915. 

19 1 5 — Letter  of  April  10,  191 5 — President  to  Secretary  of  the 
Interior. 

Pursuant  to  the  provisions  of  the  act  of  March  12,  1914,  providing 
for  the  construction  of  railroads  in  the  Territory  of  Alaska,  I  direct 
you  to  proceed  with  the  construction  of  the  routes  now  located,  and 
I  confer  upon  you  the  power  and  authority  to  do  any  and  all  acts 
necessary  thereto. 


92         ALASKAN  ENGINEERING  COMMISSION 

This  work  will,  under  your  supervision,  be  carried  on  by  the 
Alaskan  Engineering  Commission. 

The  commission  is  henceforth  charged  with  (the  general  duty  of 
preparing  and  adopting  plans  for  construction),  with  (the  employ- 
ment of  such  force  as  may  be  from  time  to  time  necessary),  and 
with  (the  making  of  all  contracts  for  the  purchase  of  the  necessary 
supplies  and  plant   for  this  work). 

For  the  proper  prosecution  of  the  work  you  will  designate  one  of 
the  members  of  the  commission  its  chairman,  who  shall  be  in  imme- 
diate charge  of  the  work  in  Alaska  and  have  power  of  approval  or 
disapproval  of  all  administrative  matters  connected  with  the  work 
in  Alaska.  He  shall  organize  the  work  into  such  departments  as 
seem  advisable.  Each  department  shall  perform  such  duties  as  may 
from  time  to  time  be  assigned  to  it  by  the  chairman.  Among  such 
departments  shall  be  a  department  of  construction  and  engineering, 
which  may  be  subdivided  into  divisions  in  the  discretion  of  the  chair- 
man, who  will  also  be  the  chief  engineer.  The  heads  of  the  several 
departments  shall  be  appointed  by  and  report  to  the  chairman,  and 
their  salaries,  except  where  such  heads  of  departments  are  members 
of  the  commission,  shall  be  fixed  by  him,  subject  to  the  disapproval 
of  the  commission  as  a  whole.  Officers  and  employees  in  the  several 
departments  shall  be  appointed  and  their  salaries  primarily  fixed  by 
the  head  of  the  department  by  which  they  are  engaged,  after  consul- 
tation with  the  chairman  and  subject  to  the  disapproval  of  the  com- 
mission. 

Contracts  for  the  purchase  of  supplies  shall  be  made  only  after 
public  advertisement  in  one  or  more  newspapers  of  general  circula- 
tion in  the  district  where  such  supplies  may,  in  the  judgment  of 
the  chairman,  best  be  purchasd,  and  shall  be  awarded  to  the  lowest 
responsible  bidder,  excepting  in  cases  of  emergency,  when,  with  the 
consent  or  approval  of  the  Secretary  of  the  Interior,  advertising 
may  be  dispensed  with. 

In  rnaking  contracts  for  construction  work,  so  far  as  may  be, 
competitive  bids  shall  be  secured  by  invitation  or  advertisement  when 
practicable.  So  far  as  the  work  may  be  carried  on  by  the  letting 
of  contracts  to  station  men,  competitive  bids  shall  be  secured  by 
invitation  on  the  ground  where  the  work  is  to  be  carried  on,  but 
in  such  manner  that  the  work  of  construction  as  a  whole  may  be 
expedited. 

The  head  of  each  department  shall  make  a  report  of  the  work  and 
operation  of  his  department  to  the  chairman  of  the  commission  as 
often  as  may  be  required.  The  Secretary  of  the  Interior  shall  make 
to  the  President  a  report,  at  least  annually,  and  as  often  as  he  may 
deem  advisable  or  the  President  may  require. 

The  chaiman  of  the  commission  shall  make  a  report  to  the  Sec- 
retary of  the  Interior,  setting  forth  the  results  accomplished  by  each 
department  of  the  work,  as  often  as  he  may  deem  advisable  or  the 
Secretary  may  require. 

The  members  of  the  commission  shall  proceed  to  the  Territory  of 
Alaska  and  remain  there  at  least  until  October  i,  except  when  on 
leave  of  absence,  which  will  be  granted  to  the  members  of  the  com- 
mission by  the  chairman,  and  to  the  chairman  by  the  Secretary  of 


LAWS  93 

the  Interior.     In  case  of  absence  from  the  Territory,  the  chairman 
will  designate  a  member  of  the  commission  to  act  in  his  stead. 

If  there  shall  be  any  machinery,  equipment,  instruments,  material 
or  other  property  of  any  sort  required  in  connection  witli  the  con- 
struction of  the  Isthmian  Canal  which  is  desired  by  the  Alaskan 
Engineering  Commission  for  use  in  the  construction  of  the  routes 
designated  in  Alaska,  tlie  Alaskan  Engineering  Commission  will,  by 
its  chairman  or  any  members,  request  the  same  from  the  governor 
of  the  Isthmian  Canal,  and  he  will,  so  far  as  and  as  rapidly  as  the 
same  is  no  longer  needed  at  Panama,  deliver  said  property  to  such 
officers  or  persons  as  the  Alaskan  Engineering  Commission  by  its 
chairman  or  a  member  may  designate. 

Under  the  contract  which  I  have  authorized  for  the  purchase  of 
the  Alaska  Northern  Railway  you  will,  on  being  advised  by  counsel 
to  the  commission  as  to  the  title  to  be  acquired,  give  the  notices 
therein  required,  make  the  initial  payment,  and  take  over  control  of 
the  railway  and,  so  far  as  may  be  advisable,  use  the  same  in  the 
construction  work.  So  far  as  it  may  be  become  necessary  to  spend 
moneys  upon  tlie  Alaska  Northern  Railway  for  construction,  you 
will  advance  such  moneys  to  the  railway  from  the  funds  appropriated 
under  the  act  of  March  12,  1914.  The  immediate  conduct  of  the 
affairs  of  the  railway  will  be  in  the  hands  of  the  commission,  and 
the  chairman  of  the  commission  may  become  president  of  the  rail- 
way. 

The  commission  will  cooperate  with  the  duly  constituted  author- 
ities of  Alaska  in  the  preservation  of  law  and  order  during  the 
work  of  construction. 

I  charge  the  commission  particularly  with  the  preparation  and 
maintenance  of  such  arrangements  as  may  be  required  for  the  health 
of  the  men  engaged  in  the  work  of  construction  and  I  instruct  you 
to  prepare  and  adopt  a  proper  system  of  compensation  for  accidents 
which  may  occur  on  the  work,  in  general  on  the  lines  of  the  system 
fww  in  force  in  the  construction  of  the  Isthmian  Canal,  but  such 
system  shall  be  so  framed  that  its  benefits  will  be  applicable  not 
only  to  those  who  are  directly  in  the  service  of  the  commission 
upon  salary,  but  also  to  those  who  may,  by  contract  with  the  com- 
mission, be  actually  engaged  in  the  work  of  construction  in  Alaska. 

Effective  this  date,  April  10,  19 15. 

1915 — Letter  of  April  30,   1915 — President  to  Secretary  of 
the  Interior. 

By  virtue  of  the  authority  vested  in  me  by  the  act  of  Congress 
approved  March  12,  1914,  entitled  "An  act  to  authorize  the  President 
of  the  United  States  to  locate,  construct,  and  operate  railroads  in 
the  Territory  of  Alaska,  and  for  other  purposes,"  I  hereby  direct 
that  (all  work  of  the  Alaskan  Engineering  Commission  under  all 
orders  made  by  me  and  the  carrying  out  of  all  contracts  entered 
into  by  my  direction  under  authority  of  said  act,  be  performed  under 
the  supervision  and  control  of  the  Department  of  the  Interior,  as 
directed  by  the  head  thereof,  in  all  respects  and  to  all  intents  and 
purposes  the  same  as  if  said  work  had  been  placed  by  law  under 


94         ALASKAN  ENGINEERING  COMMISSION 

tlie  jurisdiction  and  control  of  the  Department  of  the  Interior.) 
I  also  direct  that  contracts  for  the  purchase  of  supplies  by  the 
Alaskan  Engineering  Commission  shall  be  made  after  advertisement 
in  such  manner  as  shall  best  serve  the  interests  of  the  Government, 
in  the  district  of  Alaska,  or  otherwise,  where  such  supplies  may,  in 
the  judgment  of  the  chairman  of  the  commission,  best  be  purchased 
and  shall  be  awarded  to  the  lowest  responsible  bidder. 

Except  so  far  as  they  are  inconsistent  with  and  changed  by  this 
order,  I  direct  that  the  Executive  orders  of  April  lo,  191 5,  continue 
in  force. 

April  30,  1915. 

1915 — Executive  Order  of  June  19,  1915. 

Under  and  pursuant  to  the  provisions  of  the  act  of  Congress 
approved  March  12,  1914  (38  Stat.,  305),  entitled  "An  act  to  author- 
ize the  President  of  the  United  States  to  locate,  construct,  and 
operate  railroads  in  the  Territory  of  Alaska,  and  for  other  purposes," 
it  is  hereby  ordered  that  the  administration  of  that  portion  of  said 
act  relating  to  the  withdrawal,  location,  and  disposition  of  town 
sites  shall  be  in  accordance  with  the  following  regulations  and  pro- 
visions, to  wit : 

REGULATIONS, 

Reservations. — The  Alaskan  Engineering  Commission  will  file  with 
the  Secretary  of  the  Interior,  when  deemed  necessary,  its  recom- 
mendations for  the  reservation  of  such  areas  as  in  its  opinion  may 
be  needed  for  townsite  purposes.  The  Secretary  of  the  Interior 
will  thereupon  transmit  such  recommendations  to  the  President  with 
his  objections  thereto  or  concurrence  therewith.  If  approved  by  the 
President,  the  reservation  will  be  made  by  Executive  order. 

Survey. — When  in  the  opinion  of  the  President  the  public  interests 
require  a  survey  of  any  such  reservation,  the  Secretary  of  the  In- 
terior shall  cause  to  be  set  aside  such  portions  for  railroad  purposes 
as  may  be  selected  by  the  Alaskan  Engineering  Commission,  and 
cause  the  remainder,  or  a  part  thereof,  to  be  surveyed  into  urban  or 
suburban  blocks  and  lots  of  suitable  size,  and  into  reservations  for 
parks,  schools,  and  other  public  purposes  and  for  Government  use. 
Highways  should  be  laid  out,  where  practicable,  all  along  shore  lines, 
and  sufficient  land  for  dock  and  wharf  purposes  along  such  shore 
lines  should  be  reserved  in  such  places  as  there  is  any  apparent 
necessity  therefor.  The  plats  of  such  survey  will  be  prepared  in 
triplicate,  one  for  the  General  Land  Office  to  be  on  tracing  linen, 
one  for  the  local  land  office,  and  one  for  the  recorder  of  the  proper 
recording  district.  The  survey  will  be  made  under  the  supervision 
of  the  Commissioner  of  the  General  Land  Office  and  the  plats  will 
be  approved  by  him  and  by  the  chairman  of  the  Alaskan  Engineer- 
ing Commission. 

Public  sale. — The  unreserved  lots  will  be  offered  at  public  outcry 
to  the  highest  bidder  at  such  time  and  place  and  after  such  publica- 
tion of  notice,  if  any,  as  the  Secretary  of  the  Interior  may  direct, 
and  he  may  appoint  or  detail  some  suitable  person  as  superintendent 


LAWS  95 

of  the  sale  to  supervise  the  same  and  may  fix  his  compensation  and 
require  him  to  give  sufficient  bond. 

Superintendent's  authority. — Under  tlie  supervision  of  the  Sec- 
retary of  the  Interior,  the  superintendent  of  tlie  sale  will  be,  and 
he  is  hereby  authorized  to  make  all  appraisements  of  lots  and  at 
any  time  to  reappraise  any  lot  which  in  his  judgment  is  not  ap- 
praised at  the  proper  amount  or  to  fix  a  minimum  price  for  any 
lot  below  which  it  may  not  be  sold,  and  he  may  reject  any  and  all 
bids  for  any  lot  and  at  any  time  suspend,  adjourn,  or  postpone 
the  sale  of  any  lot  or  lots  to  such  time  and  place  as  he  may  deem 
proper. 

Manner. — Bids  may  be  made  either  in  person  or  by  agent,  but  not 
by  mail  nor  at  any  time  or  place  other  than  the  time  and  place 
when  the  lots  are  offered  for  sale  hereunder,  and  any  person  may 
purchase  any  number  of  lots  for  which  he  is  the  highest  bidder. 
Bidders  will  not  be  required  to  show  any  qualifications  as  to  age, 
citizenship,  or  otherwise.  If  any  successful  Ijiddcr  fails  to  make  the 
payment  and  file  the  application  and  other  papers  at  the  time  and 
in  the  manner  hereinafter  required,  the  lot  awarded  to  him  may 
be  reoffered  for  sale,  and  his  right  thereto  will  be  forfeited.  Noth- 
ing herein  will  prevent  the  transfer  by  deed  of  the  interests  secured 
by  the  purchase  and  the  partial  payment  for  the  lot,  but  the  assignee 
will  acquire  no  greater  right  than  that  of  the  original  purchaser,  and 
the  final  entry  and  patent  will  issue  to  the  original  purchaser  when 
all  payments  are  made. 

No  lot  will  be  sold  for  less  than  $25,  and  no  bid  exceeding  that 
amount  will  be  accepted  unless  made  in  multiples  of  $5;  the  minimum 
of  $25  on  each  lot  sold  for  less  than  $75  must  be  paid  in  cash 
within  the  time  hereinafter  specified,  and  if  the  price  bid  is  $75 
or  more  one-third  of  the  bid  price  must  be  paid  in  cash  within  said 
specified  time;  the  remainder  of  the  purchase  price  will  be  divided 
into  five  equal  annual  installments,  payable  in  one,  two,  three,  four, 
and  five  years,  respectively,  from  the  date  of  the  register's  certificate 
of  sale,  and  no  final  certificate  of  entry  will  be  issued  until  the  expi- 
ration of  said  five  years  and  until  payment  has  been  made  in  full 
for  the  lot,  and  no  patent  will  be  issued  thereon  during  said  period. 
The  successful  bidder  will  be  given  by  the  superintendent  of  sale 
a  memorandum  certificate  for  identification  purposes,  showing  name 
and  address  of  bidder,  lot,  and  the  amount  of  bid,  and  the  bidder 
must  file  it  with  the  superintendent  of  sale  before  the  close  of  the 
next  succeeding  sale  day,  or  the  next  business  day  if  bid  is  accepted 
on  last  sale  day,  together  with  his  application  to  purchase  the  lot 
properly  filled,  signed,  and  acknowedged  before  any  officer  author- 
ized to  administer  oaths  and  using  an  official  seal,  and  accompanied 
by  the  cash  payment  required  by  these  regulations,  all  on  the  forms 
attached  hereto  respectively,  and  hereby  approved  and  made  a  part 
of  these  regulations. 

The  superintendent  of  sale  will  issue  a  memorandum  receipt  to 
the  bidder  for  the  money  paid,  describing  the  lot  purchased,  and  he 
will  as  soon  thereafter  as  possible  deposit  with  the  receiver  of  the 
proper  local  land  office  the  money  received,  and  file  with  its  officers 
the   papers   deposited  with   him   by   said   bidder,   together   with    his 


96        ALASKAN  ENGINEERING  COMMISSION 

certificate  as  to  successful  bidder.  Thereupon,  if  no  objection 
appears,  the  register  will  issue  his  certilicate  of  sale  in  duplicate 
and   transmit   the   duplicate   copy  to   said   bidder. 

If  it  be  deemed  advisable,  the  Commissioner  of  the  General 
Land  Office  may  direct  the  receiver  of  public  moneys  of  the  proper 
district  to  attend  sales  herein  provided  for,  in  which  event  the 
cash  payment  required  shall  be  paid  to  said  receiver  who  will  issue 
his  official  receipt  therefor  in  lieu  of  the  memorandum  receipt  of 
the  superintendent  of  sale. 

Conditions  and  forfeitures. — If  any  lot  or  lots  sold  or  any  part 
thereof  shall  be  used  for  the  purpose  of  manufacturing,  selling,  or 
otherwise  disposing  of  intoxicating  liquors  as  a  beverage  or  for 
gambling,  prostitution,  or  any  unlawful  purpose  before  final  pay- 
ment is  made  and  during  a  period  of  five  years  from  the  date 
of  register's  certificate  of  sale,  or  if  the  purchaser  shall  fail  during 
said  period  to  comply  with  any  and  all  regulations  and  requirements 
which  the  Secretary  of  the  Interior,  in  his  discretion,  may  make 
or  authorize  to  be  made  for  the  improvement  of  streets,  sidewalks, 
and  alleys,  promotion  of  sanitation  and  fire  protection  in  the  town 
site,  all  rights  of  the  applicant  under  his  purchase  of  said  lot  or 
lots  shall  terminate  and  a  forfeiture  thereof  and  of  the  payments 
theretofore  made  thereon  may  be  declared  by  the  Secretary  of 
the  Interior,  and  his  finding  of  fact  thereon  shall  be  final.  If  any 
person  who  has  made  partial  payment  on  the  lot  purchased  by  him 
fails  to  make  any  succeeding  payment  required  under  these  regula- 
tions at  the  date  such  payments  become  due,  the  money  deposited 
by  such  person  for  such  lot  will  be  forfeited  and  the  lot,  after 
forfeiture  is  declared,  will  be  subject  to  disposition  as  provided 
herein.  Lots  remaining  unsold  at  the  close  of  sale,  or  thereafter 
declared  forfeited  for  nonpayment  of  any  part  of  the  purchase  price 
under  the  terms  of  the  sale,  will  be  subject  to  future  disposition 
at  public  sale  at  such  time  and  place  as  may  thereafter  be  provided. 

Warning. — All  persons  are  warned  against  forming  any  combina- 
tion or  agreement  which  will  prevent  any  lot  from  selling  advan- 
tageousy,  or  which  will  in  any  way  hinder  or  embarrass  the  sale, 
and  all  persons  so  offending  will  be  prosecuted  under  section  2373 
of  the  Revised  Statutes  of  the  United  States,  which  reads  as 
follows : 

Every  person  who,  before  or  at  the  time  of  the  public  sale  of 
any  of  the  lands  of  the  United  States,  bargains,  contracts,  or 
agrees,  or  attempts  to  bargain,  contract,  or  agree,  with  any  other 
person,  that  the  last-named  person  shall  not  bid  upon  or  purchase 
the  land  so  offered  for  sale,  or  any  parcel  thereof,  or  who  by  in- 
timidation or  unfair  management  hinders  or  prevents,  or  attempts 
to  hinder  or  prevent,  any  person  from  bidding  upon  or  purchasing 
any  tract  of  and  so  offered  for  sale,  shall  be  fined  not  more  than 
$1000  or  imprisonment  not  more  than  two  years,  or  both.^ 

^  In  addition  to  the  above,  a  number  of  Executive  Orders  have 
been  issued  from  time  to  time  relating  to  medical  treatment  of 
employees,  administration  of  a  system  of  workmens'  compensation, 
withdrawal  of  land  for  townsite  purposes,  etc. 


APPENDIX  5 
FINANCIAL  STATEMENTS 
Explanatory  Note 

Statements  showing  appropriations,  receipts,  expenditures 
and  other  financial  data  for  a  series  of  years  constitute  the 
most  effective  single  means  of  exhibiting  the  growth  and 
development  of  a  service.  Due  to  the  fact  that  Congress  has 
adopted  no  uniform  plan  of  appropriations  for  the  several  ser- 
vices and  that  the  latter  employ  no  uniform  plan  in  respect  to 
the  recording  and  reporting  of  their  receipts  and  expendi- 
tures, it  is  impossible  to  represent  data  of  this  character  ac- 
cording to  any  standard  scheme  of  presentation.  In  the  case 
of  some  services  the  administrative  reports  contain  tables 
showing  financial  conditions  and  operations  of  the  service  in 
considerable  detail;  in  others  financial  data  are  almost  wholly 
lacking.  Careful  study  has  in  all  cases  been  made  of  such 
data  as  are  available,  and  the  effort  has  been  made  to  present 
the  results  in  such  a  form  as  will  exhibit  the  financial  opera- 
tions of  the  service  in  the  most  effective  way  that  circum- 
stances permit. 

Appropriations  to  the  Alaskan  Engineering  Commission 
are  made  under  the  Act  of  March  12,  19 14  (38  Stat.  L.,  305), 
authorizing  the  construction  of  the  Alaskan  Railroad  and 
under  the  provisions  of  the  subsequent  amendments  (41  Stat. 
L.,  293).  In  the  following  table  they  are  listed  as  of  the  year 
they  are  made.  In  all  cases  appropriations  are  available  until 
expended.  The  figures  showing  costs  apply  equally  to  the 
disbursements  of  the  Commission,  with  the  exception  of 
$329,426.68,  the  cost  of  equipment  transferred  from  Panama, 
and  $422,879.18,  depreciation  costs,  a  total  of  $772,305.86, 
which  amounts  arise  from  book  charges  only  not  requiring  dis- 
bursements of  funds, 

97 


98 


ALASKAN  ENGINEERING  COMMISSION 


Alaskan  Engineering  Commission 
*  Appropriations  to  March  4,  1921 


Year  Made 

Construction  and  Operation 

of  Railroads  in  Alaska 

1914 

$1,000,000.00 

1915 

2,000,000.00 

1916 

8,247,620.00 

1 

1917 

14,500,000.00 

1918 

5,250,000.00 

1919 

10,002,380.00 

1920 

7,000,000.00 

*  1921 

4,000,000.00 

$52,000,000.00 

*  Data    from    Digest    of    Appropriations. 

a  Sundry    Civil    Appropriation    Act,    March    4,    1921. 

Expenditures   *  United   SUtes  Government  Alaska   Railroad;   Showing  Total   Cost  to 
October  31,   1920,  and  Estimated  Total  Cost  on  Completion 


Object 

Total  Cost  to 
October  31,  1920 

Estimated  Cost 
to  Complete 

Estimated 
Total   Cost 

a$29,s89.io7.69 

2,327.926.99 

t>3. 1 13.134.58 

573.610.55 

2,538,456.93 

425,576.29 

5,961.00 

$10,337,530.82 

$39,926,638.51 

2,327,926.99 

201,021.00 

208,576.44 

3,777,910.68 

3,314.155-58 

Headquarters    and    General    

Maintenance   and    Operation    

Preliminary     Surveys     1914-15.... 
Examinations    Controller    Bay     .  .  . 

Coal     Mine     Improvements     

Saw    Mills    and    Gravel    Pits 

Materials    and    Supplies    on   Hand. 
Miscellaneous    Physical    Property.. 
Accounts   Receivable   and    Sundries 

782,186.99 

6,316,367.61 

425,576.29 

5,961.00 

472,000.00 

472,000.00 

112,704.43 

3,352,434.16 

769,962.73 

69,728.5s 

I  12,704.43 

C2,3S2, 434.16 

1,000,000.00 
769,962.73 

069,728.55 
$12,574,876.23 

Totals     

$42,878,603.90 

$55,453,480.13 

*  Data  from  House  Hearings  1920,  and  Sundry  Civil  Appropriation  Bill  for  1922, 
t)3Grc  1026. 

a  Includes  $1,157,839.49,  cost  of  purchase  of  Alaska  Northern  Railroad,  and 
$457,532.12,   cost   of  purchase   and   rehabilitation   of   the   Tanana  Valley   Railroad. 

b  Includes  cost   of   equipment   transferred   from    Panama   amounting  to    $329,426.68. 

c  Decrease. 


APPENDIX  6 

BIBLIOGRAHY  ^ 

Explanatory  Note 

The  bibliographies  appended  to  the  several  monographs 
aim  to  list  only  those  works  which  deal  directly  with  the 
services  to  which  they  relate,  their  history,  activities,  organ- 
ization, methods  of  business,  problems,  etc.  They  are  in- 
tended primarily  to  meet  the  needs  of  those  persons  who 
desire  to  make  a  further  study  of  the  services  from  an  admin- 
istrative standpoint.  They  thus  do  not  include  the  titles  of 
publications  of  the  services  themselves,  except  in  so  far  as  they 
treat  of  the  services,  their  work  and  problems.  Nor  do  they 
include  books  or  articles  dealing  merely  with  technical  fea- 
tures other  than  administrative  of  the  work  of  the  services. 
In  a  few  cases  explanatory  notes  have  been  appended  where 
it  was  thought  they  would  aid  in  making  known  the  character 
or  value  of  the  publication  to  which  they  relate. 

After  the  completion  of  the  series  the  bibliographies  may 
be  assembled  and  separately  published  as  a  bibliography  of 
the  Administrative  Branch  of  the  National  Government. 

ALASKAN  ENGINEERING  COMMISSION 

Bibliographies 

U.  S.  Alaska  raihroad  commission.  Publications  relating  to 
transportation  and  railway  routes  in  Alaska.  (In  its  Rail- 
way  routes   in   Alaska.     Washington,    1913.     p.    167-72.) 

["The  Commission  .  .  .  made  use  of  a  large  number  of  reports, 
articles,  and  maps  relating  to  the  resources,  commerce,  climate  and 
population  of  Alaska,  as  well  as  those  dealing  more  specifically 
with  the  different  railway  routes.  The  above  list  presents  the 
most  important  of  these."] 

1  Compiled  by  M.  Alice  Matthews. 

99 


lOo       ALASKAN  ENGINEERING  COMMISSION 

Superintendent  of  documents.     Alaska;  list  of  public 


documents  for  sale  by  the  superintendent  of  documents, 
Washington,  D.  C.  [Washington,  Govt,  print,  off.]  1916. 
32  p.      (Price  list  60-26.  ed.) 

Alaska ;  list  of  publications  relating  to  above  sub- 


ject for  sale  by  superintendent  of  documents,  Washington, 
D.  C.  [Washington,  Govt,  print,  off.]  1917.  28  p. 
(Price  list  6o-3d  ed.) 

United  States  public  documents  relating  to  non- 


contiguous territory  and  to  Cuba.  For  sale  by  the  super- 
intendent of  documents,  Washington,  D.  C.  Washington, 
Govt,  print,  off.      [1910]      io2p.       (Price  list  32) 

Official  Publications 

Alaska  (Ter.)  Governor.  Reports  of  the  Governor  .  .  . 
1885 — Washington,  Govt,  print,  off.,   1885 — 

[Nearly  all  of  these  reports  have  paragraphs  or  chapters  dealing 
with  transportation  problems  in  Alaska] 

Brooks,  Alfred  H.  Railway  routes  from  the  Pacific  seaboard 
to  Fairbanks.  (In  U.  S.  Geological  survey.  Bulletin  520. 
Washington,    1912.     p.   45-88) 

[Includes  description  of  government  publications  and  records  re- 
lating to  railway  routes] 

Transportation    [in    Alaska]      {In    U.    S.    Geological 

survey-     Bulletin  no.  284,  p.   10-17;  "O-  379'  P-  23-6;  no. 

442,  p.  23-31 ;  no.  480,  p  23-4) 

The  first  article  is  entitled  "Railway  Routes." 

Data  relating  to  Alaska.  Information  relating  to  the  com- 
mercial and  productive  importance  of  .  ,  .  Alaska  .  .  . 
from  the  time  of  its  purchase  from  Russia  in  1867.  Wash- 
ington, Govt,  print,  off.,  19 12.  19  p.  62d  Cong.,  2d  sess. 
Senate.  Doc.  no.  882)      Serial  6178. 

Edes,  William  C.  Construction  of  railroads  in  Alaska. 
Statement  of  Mr.  William  C.  Edes,  chairman  Alaskan  engi- 
neering commission,  accompanied  by  Mr.  Lee  R.  Wilson. 


BIBLIOGRAPHY  loi 

(In  U.  S.  Congress.  House.  Committee  on  appropriations. 
Further  urgent  deficiency  bill,  1916.  Hearing  .  .  .  Wash- 
ington, 19 16.     p.   131-62) 

[Asking  an  emergency  appropriation  of  $2,000,000  for  railroad 
construction  work  in  Alaska] 

Fisher,  Walter  L-  Alaskan  coal  problems,  by  Walter  L. 
Fisher,  Secretary  of  the  interior.  Washington,  Govt,  print, 
off.,  1912.     32  p.     (U.  S.  Bureau  of  mines.     Bulletin  36) 

["The  accompanying  address,  in  slightly  different  form,  was  de- 
livered before  the  American  Mining  Congress  at  Chicago.  111.  on 
Oct.  27,  191 1.     It  embodies,  in  addition  to  the  results  of  the  Sec- 
retary's   personal    examinations    in    Alaska,    results    of    investiga- 
tions conducted  by  the  director  and  certain  engineers  of  the  Bureau 
of   Mines    during    the    summer   of    191 1,    and    of    more    extensive 
investigations,  covering  several  years,  made  by  geologists  of  the 
Alaska  Division  of  the  United  States  Geological  Survey."] 

Lane,  Franklin  K.  Alaskan  railroad.  Statement  of  Hon. 
Franklin  K.  Lane,  Secretary  of  the  interior.  (In  U.  S. 
Congress.  House.  Coiiiniittee  on  appropriations.  Further 
urgent  deficiency  bill,  19 16.  Hearing  .  .  .  Washington, 
1916.     p.  162-7) 

Richardson,  W.  P.  Railroad  construction  in  Alaska.  Letter 
from  the  Secretary  of  war  transmitting  a  memorandum 
prepared  by  Maj.  W.  P.  Richardson  .  .  .  president  of  the 
Board  of  road  commissioners  of  Alaska,  containing  data 
and  recommendation  relative  to  railroad  construction  in  the 
district  of  Alaska.  [Washington,  Govt,  print,  off.,  1906] 
8  p.  (59th  Cong.,  1st  sess.  Senate.  Doc.  no.  167)  Serial 
4912. 

U.  S.  Alaska  railroad  commission.  Railway  routes  in  Alaska. 
Message  from  the  President  of  the  United  States  transmit- 
ting report  of  Alaska  railroad  commission  .  .  .  Washing- 
ton [Govt,  print,  off.]  1913.  172  p.  fold.  maps.  (62d 
Cong.,  3d  sess.  House.  Doc.  1346)  Serial  6484-5. 
"Message"  is  pub.  also  separately  (with  same  document 
number)   as  "Transportation  in  Alaska." 

Alaskan    engineering    commission,     Alaska    railroad 


102      ALASKAN  ENGINEERING  COMMISSION 

record,     v.l-     Nov.    14,   19 16-     Anchorage,   19 16- 

[Official  publication  of  the  Alaskan  engineering  commission.  "The 
purpose  of  the  Alaska  railroad  record  is  to  furnish  each  week 
in  a  concise  form  current  information  concerning  the  operation 
and  construction  of  the  Government  railway  system  in  Alaska."] 

Alaskan     engineering     commission  .  .  .  Reports 


1914-15 — Washington,   Gov.  print,  off.,    1916- 

[The  Alaskan  Engineering  Commission,  appointed  to  investigate 
the  available  routes  for  the  government  railroads  of  Alaska,  was 
directed  by  President  Wilson  to  work  under  the  Department  of  the 
Interior.  The  first  report,  issued  as  House  Doc.  610,  pt.  2,  64th 
Cong.,  I  St  sess.,  includes  general  information  on  climate  and  mineral 
resources  of  the  routes  surveyed  from  the  coast  to  interior,  text  of 
Railroad  Act,  etc.] 

Congress.     House    of   representatives.     Alaskan   rail- 


road bill.  Debate  on  H.  R.  1739  to  authorize  the  President 
of  the  United  States  to  locate,  construct  and  operate  rail- 
roads in  the  Territory  of  Alaska.  Dec.  17,  19 13,  Jan.  21, 
28,  and  Feb.  5  and  18,  19 14.  {In  Congressional  record  for 
dates  mentioned)  Speeches  of  Representatives  Brum- 
baugh, Scott,  Curry,  Switzer,  Anderson,  Lenroot,  Ansberry, 
La  Follette,  Reilly,  Saunders  and  others. 

[At  the  close  of  the  debate  of  Feb.  18,  1914,  the  bill  authorizing 
the  government  railroad  for  Alaska  was  passed  by  a  vote  of  231 
to  107] 

U.  S.  Congress.  Conference  committees,  ipi^-14.  Rail- 
roads in  Alaska.  Mar.  4  [and  5]  1914.  Conference  re- 
port. To  accompany  S.  48.  [Washington,  Govt,  print- 
off.,  19 14]  6  p.  (63d  Cong.  2d  sess.  House.  Rept. 
no.  337)  Serial  6558. 
Issued  also  as  House  report  no.  341. 

Committee  on  public  lands-  Government  rail- 
road in  Alaska.  Hearing  ...  on  S.  4844,  bill  to  provide 
for  the  construction  and  operation  of  a  railroad  in  Alaska 
and  for  other  purposes  .  .  .  [May  22,  191 2]  Washing- 
ton, Govt,  print,  off.,  1912.     39  p. 

Hearings  .  .  .  Jan.   27  and  30,    191 1,  on 


H.  R.  32080.     To  provide  for  the  leasing  of  coal  lands  in 


BIBLIOGRAPHY  103 

the  district  of  Alaska  and  for  other  purposes.     Washing- 
ton, Govt,  print,  off.,   191 1.     99  p. 
Committee  on  the  tcr^ritories.     The  Alaska  cen- 


tral    railway.      [Hearing,     Jan.     26,     1909.     Washington, 
Govt,  print,   off.,   1909]     3  p. 
Statement  of  Charles  J.  Kappler. 
Alaska      coal      lands.     Hearinsfs  ...  on 


'b- 


Alaska  coal  lands,  no.    1-7.     Feb.   3-19,    1913.     Washing- 
ton, Govt,  print,  off.,   1913.     7  pam. 
The    Alaska    northern    railway.     Hearing 


.  .  .  on  H.  R.  27017,  a  bill  to  extend  the  time  for  the  com- 
pletion of  the  Alaska  northern  railway,  and  for  other  pur- 
poses. Statements  of  George  H.  Patrick  and  W.  J.  Boland, 
Jan.  20,  1913.     Washington,  Govt,  print,  off.,  1913.     29  p. 

Alaska    northern    railroad.     Hearing  .  .  . 

on  the  extension  of  time  for  completion  of  the  Alaska  north- 
ern railroad.  Statement  ...  by  Mr.  George  H.  Patrick, 
Feb.  5,  1913.     Washington,  Govt,  print,  off.,   1913.  27  p. 

Alaska     northern     railroad.     Hearings  .  .  . 

on  H.  R.  27017  and  H.  R.  28731,  extension  of  time  for 
completion  of  the  Alaska  northern  railroad.  Statements  of 
Hon.  Walter  L.  Fisher,  Hon.  James  Wickersham,  Mr.  W. 
J.  Boland,  and  Mr.  George  H.  Patrick,  Feb.  4  and  13, 
1913.     Washington,   Govt,  print,   off.,    191 3.     p.   29-44. 

The  Alaska  Pacific  railway  and   terminal 


company.  [Hearing]  H.  R.  12905  and  S.  4351.  March 
2  and  3,  1908.  Sixtieth  Congress.  First  session.  Wash- 
ington, Govt,  print,  off.,  1908.     23  p. 

The   Alaska   Pacific   railway  and  terminal 


company  [Hearing  on]  H.  R.  25553.  January  12,  14,  and 
26,  1909  .  .  .  Washington,  Govt,  print,  off.,  1909.  81  p. 
U.  S.  Congress.  House.  Committee  on  the  territories. 
Alaska  short  line  railroad  in  Alaska.  Statements  of  ]\lr. 
R.  S.  Ryan,  Mr.  Arnold  Scheuer,  and  Hon.  James  Wicker- 
sham, April  I,  1910.  Washington,  Go\i:.  print,  off.,  1910. 
12  p. 


I04      ALASKAN  ENGINEERING  COMMISSION 
The    building     of     railroads     in     Alaska. 


Hearings  ...  on  bills  H.  R.  1739,  H.  R.  1806  and  H.  R. 
2145  .  .  .  July  9 — [Sept.  20,  191 3]  Washington,  Govt, 
print,  off.,  19 1 3.     9  pts. 

Statements  of  James  Wickersham,  Falcon  Joslin,  John  E. 
Ballaine,  Richard  S.  Ryan,  D.  A.  M'Kenzie  and  George  H. 
Patrick. 
The     building;     of     railroads     in     Alaska. 


Hearings  ...  on  bills  H.  R.  1739,  H.  R.  1806,  and  H.  R. 
2145.     Report  of  Clement  Brumbaugh,  Sept.  25,  1913  .  .  . 
Washington,  Govt,  print,  off.,  19 13.     7  p. 
Relates  to  the  coal  fields  of  Alaska. 
The     building:    of     railroads     in    Alaska. 


"t> 


Hearings  ...  on  bills  H.  R.  1739,  H.  R.  1806  and  H.  R. 
2145.  Report  of  C.  F.  Curry,  Sept.  24,  1913.  Washing- 
ton, Govt,  print,  off.,  1913.  24  p. 

The     building     of     railroads     in  Alaska. 

Hearings  ...  on  bills  H.  R.  1739,  H.  R.  1806  and  H.  R. 
2145.     Report  of  Frank  E.  Guernsey.     Nov.  i,  1913  .  .  . 
Washington,  Govt,  print,  off.,  1913.     10  p. 
Construction    of    Alaska    railroad.     Hear- 


ings .  .  .  on  H.  R.  7417,  authorizing  the  appropriation  of 
the  sum  of  $17,000,000  in  addition  to  the  sum  of 
$35,000,000  heretofore  authorized  .  .  .  for  the  construc- 
tion of  a  railroad  in  Alaska  between  Seward  and  Fairbanks 
.  .  .  July  23,  24,  25,  and  31,  1919.  Washington,  Govt, 
print,  off.,  1919.     201  p. 

Construction    of     Alaskan     railroad  .  .  . 

Report  to  accompany  H.    R.   7417.      [Washington,   Govt, 
print,    off.,    1919]    6    p.     (66th    Cong.,    ist    sess.    House. 
Rept.  231.)      Serial  7593. 
— Construction  of   railroads   in  Alaska  .  .  . 


Report  and  minority  views.  To  accompany  H.  R.  1739. 
[Washington,  Govt,  print,  off.,.  1913]  19,  6  p.  fold, 
charts.     (63d  Cong.,    ist  sess.   House,   Rept.  92)     Serial 

6513- 


BIBLIOGRAPHY  105 

Pt.  2,  "Minority  views"  (6  p.)  submitted  by  Messrs.  Ferris 
and  Davenport,  ordered  printed  December  9,  19 13. 
Construction     of     railroads     in     Alaska. 


Jan.  31,   1914.     Report  to  accompany  S.  48.      [Washing- 
ton,  Govt,  print,   off.,    1914]    3   p.      (63d   Cong.,  2d  sess. 
House.   Rept.  no.  204)      Serial  6558. 
The  Copper  River  and  northwestern  rail- 


way in  Alaska.  Statements  of  Mr.  Frank  A.  Law,  attor- 
ney at  law,  Washington,  D.  C,  Mr.  John  N.  Steele,  attor- 
ney at  law.  New  York  City.  February  10,  15,  16,  and  21, 
191 1.  Washington,  Govt,  print,  oft".,  1911.  68  p. 
Hearings  on  Senate  bill  6136,  an  act  to  relieve  the  Copper 
River  and  Northwestern  Railway  Co.  in  Alaska  from  taxa- 
tion. 

U.  S.  Congress.  House.  Committee  on  the  territories. 
Government  railroads  in  Alaska.  Hearings,  May  22,  19 12. 
Washington,  Govt,  print,   off.,   1912.     39  p. 

Hearinofs   before   a   sub-committee   of   the 


'fe'^ 


Committee  on  the  territories  ...  on  transportation  in 
Alaska.  Statement  of  Hon.  W.  L.  Fisher,  Secretary  of  the 
interior,  June  17,  19 12.  Washington,  Govt,  print,  off. 
1912.     27  p. 

Hearings  ...  on  H.  9770.     "To  levy  and 

collect  an  income  tax  on  railroads  in  Alaska  and  for  other 
purposes."  Parts  i  and  2.  March  13  and  17,  1914. 
Washington,  Govt,  print,  off.,  1914.     31,  10  p. 

Hearings  ...  on  S.   2534,  an  act  to  ex- 


tend the  time  for  the  completion  of  the  Alaska  northern 
railway,  and  for  other  purposes.  Statements  of  George  H. 
Patrick,  esq.,  of  Washington,  D.  C,  and  W.  J.  Boland, 
esq.,  of  Toronto,  Canada  [Dec.  9,  1911]  Washington, 
Govt,  print,  oft'.,  19 12.  13  p. 
Hearing's  ...  on    conditions     in    Alaska 


*b" 


.  .  .     Jan.   16  [Feb.  27]    1912.     Washington,  Govt,  print. 

off.,  1912.     169  p. 

Statements   of    Bishop    Peter    T.    Rowe,    Hon.   Walter    E. 


io6       ALASKAN  ENGINEERING  COMMISSION 

Clark,  Col.  D.  M.  Stewart,  W.  M.  Bunker,  Dr.  M.  H. 
Foster,  Hon.  James  Wickersham,  and  A.  L.  Moxey. 

Hearings  ...  on    conditions     in   Alaska. 

Commercial  value  of  Alaska.  Statement  of  Hon.  James 
Wickersham,  delegate  from  Alaska,  March  29,  191 2. 
Washington,  Govt,  print,  off.,  1912.     30  p. 

Hearings  ...  on  the   bill   H.    R.    18526, 


to  construct  a  railroad  and  telegraph  line  in  the  district  of 
Alaska,  and  the  bill  H.  R.  18533,  to  aid  in  the  construction 
of  a  railroad  and  telegraph  and  telephone  line  in  the  terri- 
tory of  Alaska.  February  2,  6,  and  9,  1905.  Washing- 
ton, Govt,  print,  ofif.,  1905.     69  p. 

Railroad  and  telegraph  and  telephone  lines 

in  Alaska.  Report  to  accompany  H.  R.  18891.  [Wash- 
ington, Govt,  print,  off.,  1906]  18  p.  (59th  Cong.,  ist 
sess.  House.  Rept.  3874)      Serial  4907. 

Railroad  transportation  in  Alaska.     Hear- 


ing of  the  Western  Alaska  construction  company  before 
the  Committee  on  the  territories.  Friday,  March  11,  1904. 
Washington,  Govt,  print,  off.,  1904.      13  p. 

Railroads   in  Alaska.     Hearings    [Jan.   9- 

March  i,  1906]  .  .  .  59th  Congress,  ist  session.  (With 
index  and  map)  Washington,  Govt,  print,  off.,  1902.  179  p. 
Statements  of  experts. 

Railroads  in  Alaska.     Hearings  .  .  .  60th 


Congress,    ist  session.      [April   3-14,    1908]     Washington, 
Govt,  print.  ofT.,  1908.     80  p. 
Railroads  in  Alaska.     Statements  of  Hon, 


James  Wickersham  .  .  .  Oliver  P.  Hubbard  .  .  .  Falcon 
Joslin  .  .  .  O.  G.  Laberee  .  .  .  March  28-May  10,  1910. 
[Washington,  Govt,  print,  off.,  1910]  143  p. 
U.  S.  Congress.  House.  Committee  on  the  territories. 
Transportation  in  Alaska.  Hearings  .  .  .  Feb.  27,  Mar. 
5,  April  5,  6,  16  and  19,  1912.  Washington,  Govt,  print, 
off.,  1922.  5  pam. 
Statements  of  O.  P.  Hubbard,  of  Valdez,  William  Sulzer, 


BIBLIOGRAPHY  107 

of  Snlzer,  Falcon  Joslin,  of  Fairbanks,  and  O.  L.  Dickin- 
son, of  Skagway,  Alaska. 
Senate.     Railroads    in    Alaska.     Debate    on    the 


bill  (S.  48)  to  authorize  the  President  of  the  United  States 
to  locate,  construct  and  operate  railroads  in  the  Territory  of 
Alaska.  ^June  23,  26,  Dec.  8,  1913;  Jan.  12,  13,  21,  2^, 
March  10,  May  22,  1914.  {In  Congressional  record  for 
dates  mentioned) 

Speeches  of  Senators  Chamberlain,  Jones  and  others. 
Debate  in  Senate,  June  29,  19 16.  Congres- 
sional record,  v.  53,  no.  164,  p.  1 1752-7. 
[Includes  speeches  by  Senators  Pittman,  Martin  of  Vir- 
ginia, Smoot  and  Hughes,  and  text  of  contract  between  W. 
E.  Stavert  et  al.,  syndicate  committee,  and  Franklin  K. 
Lane,  Secretary  of  the  interior,  on  sale  of  Alaska  Northern 
railway] 

Committee    on   public   lands.     Government   rail- 


road and  coal  lands  in  Alaska.  Hearing  .  .  .  on  S.  4S44, 
a  bill  to  provade  for  the  construction  and  operation  of  a 
railroad  in  Alaska  .  .  .  and  S.  7030,  a  bill  to  provide  for 
a  permanent  supply  of  coal  for  the  use  of  the  United  States 
Navy  and  other  governmental  purposes  .  .  .  Part  i. 
.  .  .  Washington,  Govt,  print,  off.,   1911.     10  p. 

—  Committee  on  finance.     Income  tax  on  railroads 

in  Alaska.  Report  to  accompany  H.  R.  9770  ...  to  levy 
and  collect  an  income  tax  on  railroads  in  Alaska  .  .  .  July 
8,  1914.  [Washington,  Govt,  print,  off.,  1914]  2  p. 
63d  Cong.,  2d  sess.  Senate  Rept.  648)      Serial  6553. 

[Committee  recommended  passage  of  bill] 

—  Committee  on  territories.     Alaska  northern  rail- 


way. Hearing  .  .  .  Sixty-second  Congress,  on  S.  2534,  A 
bill  to  extend  the  time  for  the  completion  of  the  Alaska 
northern  railway,  and  for  other  purposes.  July  28,  191 1. 
.   .   .  \\'ashington.  Govt,  print,  off.,  191 1.  10  p. 

—  •  Construction     of      railroads     in     Alaska. 

Hearings  .  .  .  Sixty-third    Congress,    first    session,    on    $, 


io8       ALASKAN  ENGINEERING  COMMISSION 

48,  a  bill  to  authorize  the  President  of  the  United  States  to 
locate,  construct,  and  operate  railroads  in  the  territory  of 
Alaska,  and  for  other  purposes,  and  S.  133,  a  bill  to  pro- 
vide for  the  construction  of  railroads  in  Alaska,  and  for 
other  purposes  [May  2-2^,  191 3]  (with  addenda  and 
index).     Washington,  Govt,  print,  off.,   1913.     718  p. 

U.  S.  Congress.  Senate.  Committee  on  territories.  Con- 
struction of  railroads  in  Alaska.  June  17,  1913.  Report 
[to  accompany  S.  48  Washington,  Govt,  print,  off.,  191 3] 
3  p.  (63d  Cong.,  1st  sess.  Senate.  Rept.  no.  65)  Serial 
6510. 

Public  health  along  the  line  of  the  Alaska 

railroad.  Hearings  before  the  Committee  ...  on  S.  5790, 
a  bill  to  confer  additional  authority  upon  the  President  of 
the  United  States  in  the  construction  and  operation  of  the 
Alaskan  railroad  and  for  other  purposes.  May  12,  19 16. 
Washington,  Govt,  print,  off.,  1916.     28  p. 

Railroad  and  telegraph  and  telephone  lines 


in  Alaska.  Hearings  on  bills  S.  6937  and  S.  6980,  Feb- 
ruary 10,  1905;  bill  S.  191,  January  27,  1906;  bill  H.  R. 
1 889 1,  January  25,  1907,  and  Senate  document  no.  167, 
Fifty-ninth  Congress,  first  session.  Comp.  by  Thomas  R. 
Shipp,  clerk  to  the  Senate  committee  on  territories. 
Washington,  Govt,  print,  off.,  1907.      144  p.     fold.  map. 

Railroad,    telegraph,    and    telephone    lines 


in  Alaska.  Report.  To  accompany  H.  R.  1889 1.  [Wash- 
ington, Govt,  print,  off.,  1907]  14,  9  p.  (59th  Cong.,  2d 
sess.  Senate  Rept.  6625)  Serial  5060. 
Pt.  2 :  Views  of  Mr.  Newlands  together  with  amendment 
in  the  nature  of  a  substitute  intended  to  be  proposed  by  Mr. 
Newlands  to  the  bill  (H.  R.  18891),  ordered  printed  Feb- 
ruary 21,   1907. 

Railroads     for     Alaska.     Hearing  ...  on 

railroads  for  Alaska.     April  12,   19 12  .  .  .     Washington, 
Govt,  print,  off.,  1912.     32  p. 

[Statement  of  Mr.  Falcon  Joslin,  representing  the  Alaskan  Com-. 
^nittee  pf  the  American  mining  Qongress] 


BIBLIOGRAPHY  109 

• Report  ...  to  accompany  S.  5526,  a  bill 

to  amend  an  act  entitled  "An  act  extending  the  homestead 
laws  and  providing  for  right  of  way  for  railroads  in  the 
district  of  Alaska,"  May  15,  19 14.  i  p.  (63d  Cong.,  2d 
sess.  Senate.  Rept.  520)      Serial  6553. 

Report  ...  to    accompany    S.     5790,    to 


confer  additional  authority  upon  the  President  of  the 
United  States  in  the  construction  of  Alaskan  railroads.  May 
15,  1916.  I  p.  (f)-hh  Cong.,  1st  sess.  Senate.  Rept.  441) 
Serial  6899. 

U.  S.  Dcpt.  of  the  interior.  General  information  regarding 
the  territory  of  Alaska.  [1912-  Washington,  Govt, 
print,  off.,  1912-] 

Railroads  in  Alaska.     Letter  from  the  Secretary 

of  the  interior,  transmitting  data  in  relation  to  railroads  in 
Alaska  under  the  act  of  May  14,  1898  .  .  .  [Washington, 
Govt,  print,  off.,  1908]  16  p.  fold.  map.  (60th  Cong., 
2d  sess.  Plouse  Doc.  1201)      Serial  5557. 

[Data  from  1898  to  1908,  including'  a  list  of  railroad  companies 
in  Alaska,  where  incorporated,  line  of  proposed  route,  maps,  etc.] 

Railroads  in  Alaska.     Letter  from  the  Secretary 


of  the  interior  submitting  a  supplemental  report  as  to  the 
operations  of  certain  railroad  companies  in  Alaska.  Jan. 
4,  1909.  [Washington,  Govt,  print,  off.,  1909]  2  p. 
(60th  Cong.,  2d  sess.  House.  Doc.  1263)      Serial  5557. 

Railroads    in    Alaska.     Letter    from    the    acting 

secretary  of  the  Treasury  transmitting  .  ,  .  estimate  of  ap- 
propriation in  the  sum  of  $2,000,000  toward  the  construc- 
tion and  operation  of  railroads  in  Alaska,  Feb.  i,  1915. 
[Washington,  Govt,  print,  off.,  191 5]  2  p.  (63d  Cong., 
3d  sess.  House.  Doc.  1538)  Serial  6892. 
Regulations    governing    coal-land    leases    in    the 


territory  of  Alaska.  Approved  May  18,  19 16,  with  infor- 
mation regarding  coal  lands.  Washington,  Govt,  print, 
off.,  19 1 6,    86  p.     fold.  map. 


no       ALASKAN  ENGINEERING  COMMISSION 

[Paragraphs  on  transportation  from  the  various  coal  fields,  with 
reference  to  the  new  government  railroad] 

Geological  survey.     Letter  from  the  Secretary  of  the 


interior,  transmitting  report  of  [J.  W.  Powell]  director  of 
the  U.  S.  Geological  survey  on  the  merits  of  the  bill  S.  1907 
"to  facilitate  the  settlement  and  develop  the  resources  of  the 
territory  of  Alaska,  and  open  an  overland  and  commercial 
route  between  the  United  States,  Asiatic  Russia,  and  Japan," 
and  the  feasibility  of  the  construction  of  the  railroad  pro- 
posed. [Washington,  Govt,  print,  off.,  1886]  10  p.  2 
fold.  maps.  (49th  Cong.,  2nd  sess.  Senate  Misc.  doc. 
22)  Serial  2450. 
—     Isthmian  canal  commission.     Letter  from  the  chief  of 


office  of  the  Isthmian  canal  commission,  transmitting  in  re- 
sponse to  a  Senate  resolution  of  Aug.  23,  19 13,  certain 
letters  containing  information  as  to  the  amount,  character, 
and  value  of  construction  machinery,  and  so  forth,  which  it 
would  be  possible  to  transfer  to  the  territory  of  Alaska  upon 
completion  of  the  Panama  canal.  Dec.  5,  191 3  [Wash- 
ington, 19 1 3.]  8  p.  (63d  Cong.,  2d  sess.  Senate.  Doc. 
258)  Serial  6593. 
—     Laws,  statutes,  etc.     Act  to  authorize  the  President  to 


locate,  construct,  and  operate  railroads  in  Alaska,  approved 
Mar.  12,  19 14.      (63d  Congress.     Public  no.  69) 

An    act    to    levy    and    collect    income    tax    on 


railroads  in  Alaska,  and  for  other  purposes.  Approved 
July  18,  1914.  (63d  Congress.  Public  no.  144) 
President  (Taft)  Transportation  in  Alaska.  Message  from 
the  President  of  the  United  States  transmitting  report  of 
commission  appointed  to  conduct  an  examination  into  the 
transportation  question  in  the  territory  of  Alaska,  etc. 
[Washington,  Govt,  print,  off.,  1913]  5  p.  (62d  Cong.,  3d 
sess.  House.  Doc.  1346)  Serial  6484-5. 
The  "Message,"  only.  Pub.  also  (with  same  document 
number)  together  with  the  report  of  the  Alaska  railroad 
commission  as  "Railway  routes  in  Alaska," 


BIBLIOGRAPHY  in 

■= ■ —     (Wilson)      Executive   order   directing   that   the 

work  of  the  Alaskan  engineering  commission  be  performed 
under  the  supervision  and  control  of  the  Department  of  the 
interior.     Jan.  26,   1915.      [No.  2129]      i  p. 

Alaska.     Executive     order      [authorizing     free 

transportation  of  employees  of  government  and  their 
equipment,  etc.,  when  their  official  duties  require  them  to 
travel  over  government  railway  in  Alaska]  June  5,  1916. 
[no.  2394]      I  p. 

Executive  order.  Alaska  railroad  no.  6  [estab- 
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[No.  2414]  4  p. 

Executive  order,  Alaska  railroad  no.  7  [extend- 
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Message    transmitting    report    of    the    Alaskan 

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1916]    I   p.    (64th  Cong.,    1st  sess.  House.  Doc.  610.   pt. 
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Note :  For  report  and  maps,  see  Part  2. 

IVar  department.     Opinion  of  War  department  on  S. 

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[Includes  memorandum  by  Maj.  W.  P.  Richardson,  president  of 
the  Board  of  road  commissioners  of  Alaska] 

Unofficial  Publications:  Books  and  Pamphlets 

American  mining  congress.     14th,  Chicago,   ipii.     Alaskan 


112      ALASKAN  ENGINEERING  COMMISSION 

problems.  Reprint  from  Proceedings  at  the  fourteenth 
annual  session  of  the  American  mining  congress,  held  at 
Chicago,  111.,  October  24  to  28,  191 1,  .  .  .  Washington, 
Govt,  print,  off.,  1912.  43  p.  ( [U.  S.]  62d  Cong.,  2d 
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[Transportation  problem  considered] 

Alaska  short  line  railway  and  navigation  company.  The 
Alaska  short  line  railway.  Seattle,  Wash.,  The  Common- 
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Boyce,    William    Dickson.     Alaska,    present   and    future ;    its 
railroads,    mines,    fisheries,    agriculture,    people    and    laws. 
What  Alaska  wants  and  needs  .  .  .    [n.  p.,  1913?]     48  p. 
Alaska's  railroads,  present  and  future  policies,  p.  16-9. 

Emerson,  Harrington.     The  Alaskan  railway  problem.     New 
York,  The  Emerson  company,  n.  d.     3  p. 
Printed  also  in  Congressional  record,  Dec.   17,   1913,  and 
Jan.  23,   1914. 

Humphrey,  William  E.  The  Alaska  short  line  railroad  in 
Alaska.  (Statement  of  Hon.  W.  E.  Humphrey,  M.  C.) 
[Washington,  Govt,  print,  off.,  1909]     4  p. 

Johnson,  Albert.  The  defense  of  Alaska — the  union  of  the 
white  race  and  the  problem  of  universal  peace.  Speech  of 
Hon.  Albert  Johnson,  of  Washington,  in  the  House  of 
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[Treats  of  railroads  and  defenses  of  Alaska] 

Jones,  Wesley  L.  Alaska  railroad  to  Bering  coal  fields. 
Reasons  and  argument  in  favor  of  the  construction  of  fifty 
miles  of  railroad  in  Alaska  to  the  Bering  coal  fields.  In 
the  Senate  of  the  United  States,  April  19,  19 16.  Wash- 
ington,  19 16.     8  p. 

Joslin,  Falcon.  Alaska;  proposed  legislation  for  government 
construction  of  railroads  and  leasing  of  coal  lands.  An 
address  before  the  15th  session  of  the  American  mining 
congress,  Spokane,  Washington,  Nov.  27th,   19 12.     20  p. 


BIBLIOGRAPHY  113 

Laberee,  O.  G.  .  .  .  Railroads  in  Alaska  Letter  .  .  .  April 
26,  1910  .  .  .  Washington,  Govt,  print,  off.,  1916.  9  p. 

[Letter  to  Hon.  E.  L.  Hamilton,  chairman  of  the  Committee  on 
territories,  House  of  representatives,  with  regard  to  the  Alaska 
northern  railway  company,  and  its  need  of  coal  from  Mr.  Laberee, 
president  of  the  Alaska  northern  railway  company] 

Lenroot,  I.  L. — Government  ownership  of  railroads  in  Alaska. 
Speech  in  the  House  of  representatives,  Dec.  17,  1913. 
Washington,  Govt,  print,  off.,  1914.     16  p. 

Resolution  requesting  government  aid  in  railroad  construction 
on  Seward  peninsula  (passed  at  a  mass  meeting  of  busi- 
ness men,  miners  and  operators,  on  Mar.  14,  19 14,  at 
Nome,  Alaska)      Nome,  19 14.     4  p. 

Seattle.     Chamber    of    commerce.     Alaska    bureau.     Alaska, 
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Railroads,  p.  98-102. 

Tuttle,  Charles  Richard.  Alaska;  its  meaning  to  the  world, 
its  resources,  its  opportunities  .  .  .  Seattle,  Wash.,  F. 
Shuey  &  Co.,   1914.     318  p.     plates,  ports.,  maps. 

[An  interesting  treatise  on  Alaska  with  some  reference  to  its 
railway  problems] 

Wickersham,    James.     The   Alaska    railway   bill.     Speech   in 
the  House  of  representatives.     Wednesday,  Jan.  14  and  28, 
1914.     Washington,  Govt,  print,  off.,  1914.     136  p. 
At  head  of  title:   Congressional   record,   63   Congress,   2d 
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■ Good  roads,  rail,  and  water  transportation  in  Alaska. 

Speech  ...  in  the  House  of  representatives,  June  26, 
1916.     Washington,  1916.      15  p. 

Periodical  Articles 

Alaskan  railway  problem.  Outlook,  Jan.  20,  19 12,  v.  100; 
1 14-5. 


114       ALASKAN  ENGINEERING  COMMISSION 

Alaskan  railroads.     Railway  and  engineering  review,  I\Iay  24, 

1913.  V.  53:  484. 
Alaska's  new  railway.     National  geographic  magazine,  Dec. 

1915,  V.  28:  567-89.  illus. 

[History  of  the  Alaskan   railroad  project,   and  progress  in  con- 
struction] 

Alaska's  new  railway.     Spirit  of  missions,  June,  1915,  v.  80: 

393- 

[Missionary  work  to  be  simplified  and  stimulated  by  the  new  rail- 
way] 

Anderson,  Sydney.     Governmental  construction  and  operation 

of  Alaskan  railway.     Case  and  comment,  Nov.  1913,  v.  20: 

398-401. 

[States  that  Congress  has  a  constitutional  right  to  construct  and 
operate  a  railroad  in  Alaska.     Arguments  in  favor  of  such  action] 

Bache,  R.     Moving  a  railroad  six  thousand  miles.     Technical 
world,  Jidy,  1912,  v.   17:  558-61. 

[Suggestion  of  Secretary  Fisher  that  much  of  the  contemplated 
Alaskan  railroad  and  its  equipment  shall  be  transferred  from  the 
Isthmus  of  Panama  by  water  to  Resurrection  Bay.  Material  and 
equipment — rails,  locomotives,  cars,  etc. — no  longer  needed  by 
Canal  Commission] 

Ballaine,   J.    E.     Alaska's  government   railroad.     Review   of 

reviews,  May,   1915,  v.  51:  573-7.     illus. 

The     transportation     interests     of     Alaska.      Pacific 

monthly,  June,  1906,  v.15:  754-61. 

Brooks,  A.  H.     The  Alaska  of  to-day.     Review  of  reviews, 
July,  1909,  V.  40 :  49-62. 

Development    of    Alaska    by    government    railroads. 

Quarterly  journal  of  economics.  May,  1914,  v.  28:  586-96. 

[Reviews  history  of  private  enterprises,  the  need  of  further  de- 
velopment and  summarizes  provisions  of  the  Act  of  Mar.  12,  1914. 
Published  also  in  Report  of  Governor  of  Alaska,  1914] 

Railway  routes  in  Alaska.     National  geographic  mag- 
azine, March,  1907,  v.  18:  165-90. 

Brown,  A.  A.    By  rail  from  Alaska  to  the  Argentine.    Alaska- 
Yukon  magazine,  June,  1907,  v.  3:  301-8. 


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Brown,   Ashmun.     Uncle   Sam's   state-planning  task.     Tech- 
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[Task  of  constructing-  a  railway  line  from  the  Pacific  seacoast 
to  the  interior  waterways  of  Alaska  invol\'es  plans  for  location  of 
towns,  water-power  resources,  farms,  etc.] 

Chase,  F.  H,     Alaska's  railroad  development.     Review  of  re- 
views, Dec.  1908,  V.  38:  693-9. 

[Describes  roads  under  construction  and  difficulties  to  be  met] 
• Coal  crisis  in  Alaska;  government-owned  railroads  and 


government-leased  coal  lands  the  only  solution.     Collier's. 

Oct.  7,  191 1,  v.  48:  19-20. 
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Federal  railroads  for  Alaska.     Literary  digest.  May  31,  1913, 
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[Refers  to  Secretary  Lane's  recommendations  for  a  government 
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Fisher,   Walter   L.     Alaska's   needs.     Independent,    May   2^, 
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[Urges  construction  by  Federal  government  of  a  tnmk  line  rail- 
road from  the  ocean  to  the  Yukon  and  Tanana  valleys,  through 
the  great  Matanuska  coal  fields] 

A  government  owned  railway  for  Alaska.     Out  west,  Sept. 

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ri6       ALASKAN  ENGINEERING  COMMISSION 
I 
from  the  testimony  of  Stephen  Birch,  managing  director. 

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Heilig,   Frederick.     Most  urgent  needs  of  Alaska.     Alaska- 
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Hulbert,  W.  D.  What  is  really  going  on  in  Alaska.  Out- 
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(2)  Bringing  the  coal  to  the  sea  (3)  Fish,  fur  and  forest 
— and  a  few  other  things  (4)  In  the  haunts  of  the  syndi- 
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Hurja,    E.    E.      Farthest   north    in   railroading.      Technical 
world,  Oct.  1913,  V.  20:  244-5. 

[Tanana  Valley  railroad  one  of  the  most  daring  transportation 
projects  ever  attempted  in  Alaska] 

Joslin,  Falcon.     Possibilities  of  the  Tanana,     Alaska- Yukon 

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Jan.  1909,  V.  7:  245-50. 
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[Copy  of  a  letter  sent  to  Senator  Key  Pitman,  Chairman  of  the 
Senate  Committee  on  territories,  with  respect  to  government 
ownership  of  railways  in  Alaska] 

Lumpkin,    H.    H.     Uncle    Sam's    newest    town.      [Nenana, 
Alaska]      Outlook,  Oct.  25,   1916,  v.  114:  455-8. 

[Constructed  under  government  supervision,  on  line  of  Alaskan 
railway] 

McFarlin,    Kirk.      Difficulties    of    railroad    maintenance    in 
Alaska.     Scientific  American,  May  20,  1916,  v.   114:  523, 

537. 
Mitchell,  G.  E.     Government  railroads   for  Alaska.     Review 
of  reviews.  May,  1913,  v.  47:  579-84. 

[Summary  of  report  and  recommendation  of  the  Alaska  railroad 
commission] 

Nation's    pot    of     gold:    need     for     railroads     to    harvest 


BIBLIOGRAPHY  117 

Alaska's  riches.     Bankers  magazine,  Dec.  1910,  v.  81  :  866. 
Nelson,    F.    L.      Solving    Alaska's    transportation    problem. 
World  to-day.  May,  191 1,  v.  20:  586-94. 

[History  of  the  various  railroad  enterprises  in  Alaska] 

Pogue,  J.  E.  Into  the  heart  of  Alaska :  searching  for  a  rail- 
road route  to  the  Xanana  Valley.     Travel,  May,   1915,  v. 

25  :  30-3- 
President  Taft  recommends  government  railroad  buikling  in 

Alaska.     Railway  and  engineering  review,  Feb.   15,   19 13, 

V.  53: 1 39-40. 
Proposed   government   ownership   in   Alaska.     Railway    age, 

May,  22,,  1913,  V.  54:1119-20. 
Public  coal  and  public  rails   and  private   farms  and  private 

gold  in  Alaska.     Everybody's,  June,  1915,  v.32  781-2. 

[Short  article  referring  to  coal  lands  to  be  leased  from  govern- 
ment] 

Railroad  on  a  glacier.     Literary  digest,  June  28,  1913,  v.  46: 

1422. 

[The  Copper  River  and   Northwestern   railroads  runs   for  nearly 
seven  miles  over  the  lower  end  of  the  Allen  glacier] 

Railroad    routes    in    Alaska.     American    geographic    society, 

Bulletin,  June,  1913,  v.45:43i-5. 
Railway  work  in  Alaska.     Outlook,  June  13,  1914,  v. 107  1330 

[Summary  of]   report  of  the  Alaska  railroad  commission. 
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Riggs,  Thomas.  Government  railroad  in  Alaska — what  two 
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Seward  route  for  the  Alaskan  railway.  Outlook,  April  28. 
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Smith,  K.  L.  The  most  wonderful  railroad  of  the  North 
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Springer,  J.  F.  Alaskan  railways.  Scientific  American,  Jan. 
17,  1920,  v.I22;62. 


ii8      ALASKAN  ENGINEERING  COMMISSION 

Swergal,  E.  E.    Alaska's  need  of  railway  development.     Rail- 
way age  gazette,  Sept.  5,   1913,  v.55:42i-3. 

[Inadequacy  of  the  existing  lines  and  proposed  improvements  to 
open  up  the  great  national  wealth  of  the  region] 

Talbot,  F.  A.     A  railway  through  Alaskan  glaciers.     World's 
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[Discusses  the  Copper  river  line] 

To  develop  Alaska's  resources.     Independent,  May  15,  1913, 

v.  74:  1099-1101. 
Uncle  Sam's  Alaskan  railroads.  Literary  digest,  Jan.  3,  1920, 

v.64 :95-96. 
Underwood,  J.  J.     Uncle  Sam's  own  railroad.     Sunset,  Nov. 

1916,  V.37  :23. 
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Review  of  reviews,  Nov.  1916,  v.54:543-4. 
Wanted:  a  railway  system.     Literary  digest,  Sept.  27,  1913, 

V.  47:  519-20. 

[Quotes  from  an  article  by  E.  E.  Swergal  in  Railway  Age  Gazette 
Sept.  5,  1913.  "More  railway  transportation  is  Alaska's  cry- 
ing need"] 

Weems,  Carrington.    Alaska's  transportation  problem.    World 
to-day.  Mar.  191 2,  v.  21  :  1893- 1903. 

[An  unprejudiced  discussion  of  the  question  as  to  whether  the 
needed  railroads  should  be  built  by  the  government  or  by  private 
enterprise.] 

Government  railroads  in  Alaska.     North  American  re- 


view, April,  1914,  V.  199:  573-84. 

[Discusses  history  of  the  act  which  authorizes  the  building  of  a 
government  railroad  in  Alaska.  Outlines  his  reasons  for  opposing 
the  project] 

W^hat  a  railroad  will  do.      [Editorial]     Alaska- Yukon  mag- 
azine, Aug.  1909,  V.  8:  372-3. 
Willey,   D.   A.     Railroad  building  in  Alaska,   a  remarkable 


BIBLIOGRAPHY  119 

railway  engineering  feat.     Scientific  American  supplement, 
July  13,  1912,  V.  74:  24-6. 

[Copper  River  railroad] 

Wilson,  Owen.  To  railroad  prosperity  into  Alaska.  World's 
work.  Mar.  1914,  v.  27:  512-32. 

[Points  out  logical  railroad  routes  and  need  of  government  aid] 

Woolley,  Monroe.  Rails  to  revolutionize  Alaska.  Technical 
world,  Feb.  1914,  v.  20:  898-903. 

[The  Panama  Canal  needs  the  Alaska  railroads,  present  and  pro- 
spective.    Likewise,  Alaska's  railroads  need  the  canal] 

Manuscripts 

Joslin,  Falcon.  Statement  of  conditions  affecting  government 
railroad  to  be  constructed  in  Alaska,     n.  p.,  1914.     30  1 

Mann,  Seth.  Report  of  Seth  Mann,  personal  representative 
of  the  President  on  tour  through  Alaska  under  auspices  of 
the  Alaska  Bureau  of  Seattle  Chamber  of  commerce.  June 
21  to  July  29,  191 3.     19  1. 


INDEX 


Accounting,  division  of,  36,  65. 

Activities,  of  Railroad  Commis- 
sion, lo-ii;  of  Alaskan  En- 
gineering Commission,  45-58; 
classification  of,  76-78. 

Alaska  Central  Railway  Co.,  6,  8. 

Alaska  Home  Railroad,  9. 

Alaska  Northern  Railroad,  con- 
dition of,  15;  evaluation  and 
purchase  of,  17,  26-27;  reha- 
bilitation of,  48;  operation  of, 
49. 

Alaska  Steamship  Co.,  36. 

Alaskan  Railroad  Record,  32,  79. 

Anchorage,  construction  begun 
from,  18,  25 ;  receiving  and 
forwarding  department  at,  21, 
54;  distribution  of  supplies  to 
and  from,  22-23 !  divisions  es- 
tablished, 25 ;  first  townsite  es- 
tablished at.  31 ;  divisions  com- 
bined with  Seward  division,  36  ; 
telephone  system  at,  48;  ter- 
minal district  organized  in 
1916,  50;  dock  operations  at, 
53;  sale  of  lots  at,  56;  expendi- 
tures in,  by  Commission,  57- 
58. 

Annual   reports,   79-80. 

Appropriations,  34,  39-43,  56-58, 
97-98. 

Assistant  Engineer  of  Mainte- 
nance and  Construction,  64. 

Assistant  Superintendent  of  Con- 
struction,  64. 

Assistant  Superintendent  of 
Track,   64. 

Auditor   of   Station   Agents,   65. 


Bibliography,  99-118. 

Board    of    Road    Commissioners, 

48. 
Brooks,  Alfred  H.,  10. 

Chairman  of  Commission,  powers 

of,  60. 
Coal,  contract  for  supply  of,  20 ; 

operations  in  mining  of,  20-21, 

28,  51-53- 

Coastwise  Steamship  and  Barge 
Co.,  37. 

Commission,  see  Railroad  Com- 
mission. 

Committee,  on  appropriations, 
43 ;  on  foreign  relations,  2 ;  on 
territories,  hearings  of,  on  rail- 
road construction,  in  Alaska,  8; 
on  appropriations  for  Commis- 
sion, 34-35,  42. 

Congress,  bill  introduced  in.  for 
railroad  project,  2;  refuses  to 
grant  franchises,  5 ;  enacts  gen- 
eral law  for  railroad  construc- 
tion, 5;  hearings  in.  on  govern- 
mental aid  to  railroads,  7;  bills 
introduced  on  Alaska  in  62nd 
session  of,  10;  authorizes  con- 
struction, 12;  action  of,  on  ap- 
propriations, 34-35 ;  efifect  of 
delay  in  appropriations  by,  39- 
43  ;  authorizes  expenditures  for 
coal   cleaning  plant,   43. 

Conservation  movement,  10. 

Construction,  of  private  rail- 
roads, 5-13;  of  government 
railroad,  18-44;  activities  of, 
46-48. 


121 


122 


INDEX 


Copper  River  and  Northwestern 
R.  R.,  IS. 

Cost,  estimates  of,  obtained  by 
Commission,  17 ;  of  publication 
of  Railroad  Record,  132;  of 
Alaska  Northern,  48;  of  Tan- 
ana  Valley  Railroad,  48-49;  of 
construction,  35,  38-39,  42;  of 
coal  production,  52 ;  of  main- 
tenance estimated,  54. 

Costs,  of  transportation,  effect  of 
early  railroad  construction, 
upon,  5-6;  per  capita  in  placer 
districts,  1909,  9;  importance 
of,  in  construction  costs,  21 ; 
saving  effected  in,  21-22. 

Cox,  Leonard  M.,  10. 

"Crook,"  arrangements  made  with 
War  Dept.  for  operation  of, 
21. 

Department  of  Labor,  38. 
Disbursing  Office,  68. 
Drafting  Department,  64. 

Edes,  W.  C,  13,  18. 

Engineer,  in  charge,  65 ;  of  main- 
tenance and  construction,  63- 
64. 

Engineering  representative,  office 
of,  established,  19;  abolished, 
20. 

Examiner  of  Accounts,  65. 

Executive  orders,  90-96. 

Expenditures,  summary  of,  45- 
46 ;  on  rehabilitation  of  pur- 
chased roads,  48-49;  on  coal 
mining  operations,  52 ;  on  town- 
sites,  57-58;  total  of,  98. 

Geological  Survey,  report  of 
director  of,  2-3. 

Gold,  effect  of  discovery  of,  on 
railroad  construction,  4;  re- 
duced production  of,  43. 

Governor  of  Alaska,  early  views 
of,     on     transportation,     3-4; 


opinion  of,  on  slow  progress  of 
railroad  construction,  6;  sug- 
gestion of,  on  regulation  of 
railways,  7;  appointment  of  in- 
vestigating commission  urged 
by,  9- 

Hearings,  see  Congress  and  Com- 
mittee. 

Homestead  Act,  effect  of,  on 
railroad  construction,  6. 

Hospitals,  54,  64. 

Ingersoll,  Calvin  M.,   10. 

Interior,  Department  of,  bill  re- 
ferred to,  2 ;  work  of  construc- 
tion placed  under  supervision 
of,  18 ;  represented  by  manager 
of  Land  and  Industrial  Dept., 
27-28. 

Interstate  Commerce  Commis- 
sion, evaluation  of  Alaskan 
Northern  R.  R.  verified  by,  26; 
reports  to,  50. 

Klondike,  effect  of  discovery  of 
gold  in,  4-5. 

Land  and  Industrial  Department, 
creation  of,  27;  duties  of,  27- 

32,  55- 
Land  Office,  20,  28,  30. 

Laws  relating  to  Alaskan  Engi- 
neering Commission,  84-90;  in- 
dex to,  81-84. 

Letters,  of  President  to  Secretary 
and  of  Secretary  to  Commis- 
sion, 90-96. 

Lots,  appraisal  and  sale  of,  29-30, 
56-58. 

Maintenance,  54-55;  division  of, 

63-64-. 
Matanuska,    56-58. 
Mears,    Lieut.    Frederick    F.,    13, 

18,  Z2,  35.  41-42,  43,  61. 


INDEX 


123 


Mechanical    department,    64. 
Mines,   Bureau  of,  28. 
Mining  Department,  64. 
Morrow,   Maj.  Jay  J.,   10. 

Northern  Division,  establishment 
of,  36;  organization  of,  64-65. 

Operation,  of  railroad,  37,  49-51; 
of  coal  mines,  51-53;  of  docks, 
53;  of  power  plants,  53;  of 
miscellaneous    ser^aces,    54-55. 

Organization,  59-75. 

Pacific  Steamship  Co.,  36. 

Panama,  supplies  for  govern- 
ment railroad  obtained  from. 
18-19. 

Personnel,  66-75. 

Population,  effect  of,  on  railroad 
development.  2,  4. 

President  of  the  United  States, 
authority  under  Act  of  1914,  12, 
29.  40.  59,  62;  selection  of 
route  for  railroad  by,  17;  di- 
rects Commission  to  begin 
work,  17;  withdraws  tracts 
of  public  domain,  29 ;  issues 
regulations  for  sale  of  lots.  etc.. 
29-30;  letters  of,  to  Secretary 
of  Interior,  90-96. 

Publications,   79-80. 

Purchase,  of  Alaska  Northern 
Railroad,  26-27;  office  for,  es- 
tablished, 19,  37;  duties  of  en- 
gineering representative  trans- 
ferred to  division  of,  20;  du- 
ties of  division  of,  66. 

Railroad  Commission,  appoint- 
ment of,  urged  by  Governor  of 
Alaska.  9;  appointment  of,  for 
investigation,  10 ;  report  of,  11  ; 
investigations  of,  utilized  by 
Alaskan  Engineering  Commis- 
sion,   16. 

Railroad  Operating  Division,  64. 


Railroads,  causes  for  construc- 
tion of,  4;  commission  to  in- 
vestigate questions  of,  10;  con- 
struction of,  under  act  of  1898, 
5-9;  earning  possibilities  of, 
43-44;  construction  of,  by  gov- 
ernment, 18-44;  effect  of  con- 
servation movement  upon,  10; 
eft'cct  of  war  upon,  32-33 ;  fail- 
ure of  private  construction  of. 
7,  9-10;  history  of,  1-13;  first 
period,  2-5 ;  period  of  private 
construction,  5-9 ;  period  of 
agitation  for  government  rail- 
road, 9-13;  necessity  for  gov- 
ernment construction  of.  i,  11- 
12;  obstacles  to  construction 
ol  3.  6,  7-9,  18.  32-33.  38-43; 
progress  of,  after  Homestead 
Act.  6-y:  report  of  railroad 
commission  on,  11;  Report  of 
Alaskan  Engineering  Commis- 
sion upon  routes  for,  17;  situa- 
tion of.  prior  to  creation  of 
commission,  1-13;  survey  of 
routes  for,  by  commission,   13- 

17- 

Rates,  9,  II,  15,  50. 

Receiving  and  Forwarding  De- 
partment, establishment  of,  21. 

Reorganization,  35-36,  55. 

Resident  Mining  Engineer,  64. 
Riggs,  Thomas  Jr.,  13,  18,  32,  61. 

Saw  mills,  20,  54. 

Secretary  of  the  Interior,  di- 
rected to  proceed  with  survey, 
13 ;  to  purchase  Alaska  North- 
ern and  supervise  construction, 
17-18,  59,  62;  to  make  land  res- 
ervations, 29;  order  of,  relat- 
ing to  schools.  31 ;  to  designate 
Chainnan  of  Commission,  60; 
letters  of  and  to,  90-96. 

Secretary  of  the  Treasury,  57. 

Southern  Division,  establishment 
of,  ^6;  organization  of,  63-64. 


124 


INDEX 


Station  men,   system  of,  24. 

Supplies  and  equipment,  acquisi- 
tion of,  for  government  rail- 
road, 18-21 ;  transportation  of, 
21-22;  distribution  of,  22-23; 
consolidation  of  divisions  of, 
36;  organization  and  function 
of  divisions  of,  65. 

Superintendent  of  Construction 
and  of  Mines,  64. 

Taft,  Wm.  H.,  10,  11 -12. 

Tanana  Valley  R.  R.,  condition 
of,  15;  purchase  of,  33-34;  re- 
habilitation of,  48-49;  opera- 
tion of,  49-50. 

Telegraph  and  Telephone,  47-48 ; 
Department  of,  64. 

Terminal   facilities,  47. 

Townsite  and  Railroad  Record, 
Department  of,  64. 


Townsites,  27-31,  55-57. 

Traffic,  estimates  of,  16,  43,  44n; 
development    of.    27-32,    55-58. 

Transportation,  Department  of, 
64;  development  of,  by  Federal 
government,  5n,  9n;  handling 
of  matters  relating  to,  21-22, 
36-37- 

Valdez,  Copper  River  and  Yukon 
Railroad  Co.,  8. 

Wagon  roads,  48. 

Wasilla,  56,  57,   58. 

Water    transportation,    effect    of, 

on     railroad     construction,     3; 

effect  of   war  upon  rates   for, 

21. 
White  Pass  and  Yukon  R.  R.,  5, 

22,  37. 
Wilson,  Woodrow,  18.     See  also 

President. 


